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DOCUMENT VSUME
ED 222 .139 HE 015 552
AUTHOR Fernandez, Ricardo R.; And OthersTITLE Report on State Services to the Hispanic Population,
of Wisconsin.INSTITUTION ,
Wisconsin Governor's Council for Spansh SpeakingPeople, Madison.
PUB DATE Nov 76NOTE , 135p. (")
EDRS PRICE MF01/Pg06 PlUs Postage.DESCRIPTORS Adult Education; Affirmative ACtion;4 Bilingual
Education; Bilingualism; Delivery Systems;Educational Policy; Elementary Secondary Education;Employment Practices; Graduate Study; *HigherEducation; *Hispanic Americans; MulticulturalEducation; Needs Assessment; Personnel Policy;*Public Policy; Spanish; *Spanish Speaking; *StateAgencies; State Surveys;, Student Financial Aid;.Technical Education; Undergraduate Study; VocationalEducation
IDENTIFIERS *Blue Ribbon Commissions; *Wisconsin
ABSTRACTThe scope and quality of services provided to
Hispanic persons in Wisconsin were investigated in 1976 by theGoveTnor's Council for Spanish Speaking People and comparisons weremade to findings of 1971 and 1974 reviews. Detaile0 questionnaireswere developed for each state agency, and five hea'rings were held indifferent locations within the state. For each of the followingagencies, information is provided on their functions, questionnaireresponses, and council recommendations: Educational CommunicationsBoard; Higher Educational Aids Board; Department of PublicInstruction; State Historical Society; University of WiiconsinSystem; Vocational, Technidal, and Adult Education System; Departmentof Administration; Department of Agriculture; Department of Industry,Labor, and Human Relations; Department of Regulation and Licensing;State Manpower Council; Department of Health and Social Services;Department of Justice; Wisconsin Council on Criminal Justice;Department of Business Development; Office of the Commissioner ofCredit Unions; Department of Local Affairs and Development;Department,of Natural Resources; Department of Revenue; andDepartment of Transportation. The following problem areas areidentified: Histnics are too often identified with migrant workers;Hispanics are fr quently combined with other groups under the broadercategory of "minorities"; policy that is set at upper administrativelevels is often not implemented at the lower and middleadministrative levels; and token efforts to meet responsibilisties tothe Hispanic population often subs'ititute for permanent changi withinthe agency. (SW)
************************************************************************ ReproduCtions svpplied by EDR5 are the best that'can be made *
* from the original document. *
***********************************************************************
#
REP6RT ON STATE SERVICESTO THE HISPANIC POPULATION
L
as
OF WISCONSIN
'GOVERNORS-COUNCIL FOR SPANISH-SPEAKING PEOPLEr\-2\fl
NOVEMBER 1976v-)
"PERMISSION TO REPRODUCE THIS
C)MATERIAL HAS BEEN GRANTED BY
U.S.OEPANTNIENT OF EDUCATIONNATIONAt. INSTITUTE OF EDUCATION 14.1%.".2 /7 LA. .4e2A,Cess
FDU A TONAL RESOURCES INFORMATION
That donaonot ha bean tatu'odocod IT%
CENTER IERICI
nhasi nom tho parson on orpansfatIonorsprialing IIMinot I Wows have boon mado to mooseroprodi. Hon qualify
Points of slaw or poinams %lanai in Ono documom do not nocassanly raotasant official NIEp09111011 08 policy
TO THE EDUCATIONAL RESOURCESINFORMATION CENTER (ERIC)."
ACKNOWLEDGEMENTS"
The Council wishes to acknowledge the assistance of severalindividuals whose cooperation made this report possible:
Philip E. Lerman
Judith Temby
The staff of the State Manpower Council, where the.Council
was housed during this study, provided needed help promptly,
and we thank them all for their efforts.
4.
TABLE OF CONTENTS
Page
I. Introduction 1
,II. Methodology 8
III, Publit HeA.ings12
A. Fond du Lac (May 10, 106) 14
B. Racine/Kenosha/Walworth (May 11, 1976) 22
C. Milwaukee, northeast side (May 12, 1976) 29
D. Jefferson (May 12, 1976) 33
E. Milwaukee, south side (May 13, 1976) 39
IV. Recommendations45
A.
,
Report of the Education Committee
1. Educational Communications Board2. Higher Educational Aids Board3. Department of Public Instruction4. State Historical Society-5. University of Wisconsin System6. Vocational, Technical and Adult Education
System
4754
586366
78
B. Report of the Employment, Manpower andAffirmative Action Committee
1. Department of Administration 84
DepartMent'of Agficutture, . 96
3. Department of Industry, Labor and Human I
Relations 98
4. Department of Regulation and Licensing 108
5. State Manpower Council 110
C. Report of the Health and Social ServicesCommittee
1. Department of Health and Social Services 117
2, Department of Justice 131
3. Wisconsin Council on Criminal Justice 134
iii
5
,
a
Table. of Contents Contd. Page
D. Report of the Housing and EconomicDevelopment Committee
1. Department of Business Development 1382. Office of the Commissioner of Credit
Unions . 1433. Department,of Local Affairs and
Development 1444. Department of'Natural Resources 1485. Department of Revenue 0 1526. Department-of-Transportation 154
V: Concluding Remarks 0 158
iv
INTRODUCTION,
The Governor's Council for Spanish Speaking People of Wisconsin was established
by Executive Order No. 23, issued by Governor Patrick J. Lucey On January 29,
1976.
Initial appointees to he Council were eleven citizens and two legislators:
Luis Antonio BSez (Milwaukee)Rev. Jaime E. Davila (Milwaukee)Lucio Fuentez (Belgium)Manuel Garcia NORez radisolA. Armando Orellana MadisonJuanita Renteria (Milwaukee)Pedro Rodriguez (Waukesha)Rev. Roberto Rodriguez (Kenosha)Carlos A. Sevilla (Appleton)Francisco A. Urbina (Milwaukee)Dr. Clemente S. Villarreal (Milwaukee)State Senator Timothy Cullen (D-Janesville)State Representative Edward Jackamonis (D-Waukesha)
The resignation of Mr. Orellanain 'Mlii.Ch-was followed by the appointment of
three additional citizens to the Council: Arturo Gonzales (Burlington),
Francisco Rodriguez (Madison), and Maria Anita Sanchez (Stoughton). Council
, membership now stands at fifteen.
The Council was 'ordered by Governor Lucey to "study the effect of selected state
laws and policies on Latin residents of Wisconsin, identify problems and
recommend state government measures to alleviate them." In order to facilitate
its task, Dr. Ricardo Fernandez, Assistant Professor at the University of
Wisconsin-Milwaukee School of Educati40 and the University of Wtsconsin-Extension
Center for Urban Community Development, was appointed Coordinator of the work
to be performed by the Council.
At its initial meeting in February, Council members elected Carlos A. Sevilla
to serve as Chairperson and organized themselves into four standing committees
grouped into broad categories based on related issue areas. Additionally, there .
was an attempt to distribute the workload evenly a this resulted in a few
agencies being assigned someWhat arbitrarily to ccklttees. These committees
and the agencies assigned to them are listed below n alphabetical-order:
4
A. Education
Educational Commuhications BoardHigher Educational Aids BoardDepartment of Public InstructionState Historical SocietyUniversity of Wisconsin SystemVocational, Technical and Adult Education System
B. Employment, Manpower and Affirmative-Action
Department of AdministrationDepartment of Agriculture
Department of Industry, Labor and Human RelationsDepartment of Regulation and LicensingState Manpower Council
C. Health and Social Services
Department of Health and Soctal ServicesDepartment of,Justice.Wisconsin Council on Criminal"Justice
D. Housing and Economic Development
Department of Business DevelopmentCommissioner of Credit Unions (Office of the)Department of Local Affairs and DevelopmentDepartment of Natural ResourcesDepartment of RevenueDepartment of Transportation
Monthly meetings were decided upon as necessary to complete.the work as soon asl.
possible. Special meetigigs were to be called as needed. (Minutes of all Council
meetings are contained in the Appendix, Volume 2, of this report.)1
1Copies of the Appendix, Volume 2, may be consuTted in the Executive Office,the Department of Administration, the Legislative Reference Bureau, theState Historical Society, and the General Reference and Loan Library of theDepartment of Public Instruction.
Historical Background
Prior to the establishment of the Governor's Council for Spanish Speaking People,
there had been two attempts by state government to assess the needs of Hispanic 2
residents. In March 1971, Governor Lucey appointed a "Task Force on Problems of
the Spanish-Speaking," made up of citizens and state officials. After a'series
of public hearings and in-person visits to agenciesr4W-1;arious Cities in the
state to study the problems faced by Hispanic persons, the Task Force reported
its recommendations to the GoVernor )n June of that year. This wa), followed
by requests made by the Governor for state and local agencies terimplement these
recommendations; Copies of the Task Force. Report were disseminated as well among
agencies serving the Hispanic community. However, response from state agencies
was uneven and, although some goals were met, the peed for,additional follow-up
continued to exist.
In the Spring of 1974, .0 the request of the Governor, John Kostishak, then an
. examiner in the Depaetment of .Industry, Labor and.Human Relations' Equal Rights
Division; and,Avelardo Valdez, a former employee of the'UW-Extensions Center.
for Community Leadership Development, conducted a review of*all state' agencies
2,The term Hispanic (or Hispano), as used in this report, means a Spanish=originperson (Mexican American or Chicano, Puerto Rican, Cuban, Central American,South American, and others Of Spanish heritage) who are citizens or permanentresidents of the United States, its territories and possessions. The term isgaining considerable acceptance by state and federal agencies, including theBureau of the Census, which plans to use.it in the lq80 census. It is usedbecause of its broad applicability to the entire spectrum of Spanish-origin/heritage persOns.
On occasion, the term Hispanic (or Hispano) is.used to denote persons whopossess the ability to communicate effectively in Spanish and who, because oftheir cultural background, are well qualified to interact with specific popu-lations. As used in this report, the term is not to be considered synonymouswith the ability to speak Spanish fluently, although the majority of Hispanosin Wisconsin are ipdeed fluent in their language.
-57
and the services provided to Hispanic persons in Wisconsin. The findings oftheir in-depth research and study, which was meant to bring the 1971 Task ForceReport.up-to-date, are contained in tin) little-known volumes titled PAS'OSReport (Project to Ahalyze the Status of the IpanishrSpeaking), which was sub-mitted to the Governor in the summer of 1974. The results of this effrt werenot shared with state or community agencies.since the document was developedas an in-house review for the Executive Office to ascertain what progresse-ifany, had been made by the state in serving the Hispanic population. (Both theTask Force R4oft and the PASOS Report are included in the Appendix, Volume 2.)
In October 1975, Governor Lucey selected a number of agencies and shared withtheM pertinent sections of the PASOS Report. He asked them to provide him withan up-dated review of, their agency's efforts relatedto the Spanish-speaking,
population since the 1971 report was issued. Their responses are contained inthe Appendix, Volu7(2.
. .
During 1975, at the request of the Latin Council of Wisconsin, a series ofmeetings were held 4etween several Latin Council members and persons on theGovernor's staff. 1he purpose of these meetings was to.discuss the need fora review and up-date of previoUs efforts by state government to address theneeds of the Hispanic community. There was general agreement by all tnvolved -in these discussions that a vehtcle Was needed to carry out this task in amore complete and comprehensive way than, before. The concept of a council tobe appointed by the Governor, to carry out this task:emerged; and the LatinCouncil was.asked by the Governor's Office to assist $n the process of defining_
the structure and composition of the proposed council, as well as in suggesttnghow persons might be selected to serve-on it. 'An ad hoc committee was estab-lished by the Latin Council for this purpose in the Fill of 1975.,
By late fall' the structure and Composition had been agreed upon. The council,
would consist of fifteen (15) persons; tWo of whom wouid be legislators (pref-erably one from each house of the legislature) and thirteen citizens fromthroughout the state. Nominations (including resumes) would be solicited fromagencies, orNnizations, and groups serving the state's Hispanic community,and appointments would be made by the Governor. In January, 1976, after seveiral'months of negotiations, the Council became a reality.
11
I.
-6-
A
a
Within this historical perspective, the Governor's Council for Spanish Speaiiing
People represents the third attempt by Governor Lucey's Office to study the
conditions of Hispanos in Wisconsin. It should be noted, however, that there
are significant differences betwee; this report and previous reports since this
one addresses only the programs and services administered by agenctes over Which
.the state has responsibility and control, directly or indirectly. The 1971 Task
Force RepOrt, for example, contained a number of recommendations which were
directed at agencies or units of government over which the state had no control
or influence, e.g., city police departments. 'Further, the Governor's Councir"A IV
for Spanish Speaking People, was directed to not only study the problems, but to
recommend measures which state government can and should undertake to alleviate
them. Contrary to the 1974 Atport, which was mostly descriptive (aIthough.it
did contain a number of important recommendation0, the report-which folloWS
clearly prescribes the actions which; in the Council's judOenANestate agencies
must take to improve-the quality and scope of servites to the Hispanic community
'of Wisconsin. As such, it will assist agencies in changing existing policies, .
administrative structures, rules and regulations, guidelines, etc., or forMulating
new ones in order to better serve this segment of the population and, by exten-.
sion, the general public as well.
Planned Follow-Up Activities 4
At the conclusion of the investigatory work, the function of the Governor's
Council for Spanish Speaking People will be to monitor progress made by state
agenCies in impleMenting the recommendations cOntainedfin the report to.the,54.
Governor. A decision about the future role of the Council will be made during
1977.
This report is submitted in a piit of cooperation between the GoOernor'.s
Council for Spanish'Speaking People and state agencies. As an investigative*
arm of the tkeculive Office, the Council,has endeavored t9 study with care,
state programs and services as well as existjng structures for delivery of
these services. The recommendations contained in this report constitute the
Council's considered opinion, based on as much evidence ai could be obtained in
a relatOely short period of time, on what needs to be 'thine to improve the' level
and quality of services to'Wisconsin's Hispanic citizens and residerits.
It is expected that these efforti 1111 be taken seciously by.state governMent
agencies asrthey make policy and pian for a better future for all ^of-WiscOnSiWs
i-esi dents.
4
4
13,
1.
METHODOLOGY
In. building its.data base, the Governor's Council foe Spanilh Speaking People
fiest reviewed the 1971 Task Force Report and. the 1974.PASOS (Project to Analyze
the Status of theOyanish-Speaking) Report. This was done fortwo reasOns:
first, to assure continuity of previous efforts; and,secondly: to asceetain
,general progress longitudinally from 1971 theough 1976. The difference between
the first two reports prevented any systematic longitudinal review of individual
recOmmendations. There was no:attempt to update recOmmendations contained in the
1971 Study, smile of which Were carried into:the 1974 stUdy, and incorporate:them
into this report. 'Insomecaset,:changes whicWhave occurred in Some agencies
. prevent thit from-being done. However,a cursory eeview of the 1971 and 1974
eepOrts leaves the readerwfth a sente Ofcontlnuity, which carries over into
this eeport., Additional up-dates 'of recommendations Should be based on the
1976 report,-al1 Oough fuether reference to previous eeports may be useful.
The Council.used two practical, vehicles to gather information: formal question-
naires and a series of public heaeings... (Cdpies oUall'qUestionnaires are
included i4-the Appendix,4Volume 2.).
A detailed questionnaire was developed for each state agency. In those cases
where a single instrument would have proved too cumbersome, questionnaires were
prepared fOr divisions within agencies. The format adopted was based on the
1974 PASOS Report and in many instances the same questions wereil504 with slight
modifications. Additional items were added as needed, and some iteffs were
eliminated due to change5 in programs, laws, agency structure and assigned
functlon(s)%
All questionnaires were sent out on Friday', April 16, 1976, With a cover letter
from the\Goyernor requesting a. retponse by April 30th. Agencies were also
y asked to appOint a liaison person to be contacted should Clartfication or
additional information,from Oe agency be needed. Some large agencies had
ydifficulty in meeting the deadline and information was received continubusly
from late April,thrOugn May. May 31st wasselected as a cut-off date.by the
CoUltil, and lnforMatto'n:recei.ved after that date was not considered in the
Council's deliberations .
ilte second vehiele used by the CounCil in obtaining information was a series of
five hearings held in different locations throughout the state. A hearing was
scheduled in each of the following cities: Fond du Lac, Racine, Jefferson; and
.-10-
two:hearings took place in Milwaukee to accommodate its larger population. (partIII Of this repOrt contain's detailed information on these publtc hearings.)_
Announcements of thei heartngs and their purpose were mailed out to all knownagencies.,serVing the HispanicA4ulattohof Wisconsin. The 1976veddtion of theDirectory.of Latin Agencies and Organizations, pUblished by the WisconsinChrisilah,CounCil On Spantsh Speakina Agfairs, was utilized to draw up a mailinglistAnnouncements Of the hearings alsb appeared tn major neWspapers through,out:Wisconsin. Feedback came in'theformof persbnaltatements (in oral and/orwritten form) bYcitizens agency personnel and others oWwhat,they perceived tobe the scope andiOuality.of services which state agencies wereprovidfna; howH4panic persOns were, or were ha benefiting from'them; what the reasons were forthis state-of affairs; and,:finally, what they felt should be done to alleviateor eliminatd these problems. Data obtained at these hearings was categorized andgiven totiAhe:,Councir's comMittees to be taken into accoUnt aS they formulatedrecommendations.
The Council met as often as was necessary, and assistance was received frOm out-side persons who volunteered to help since the only staff available consisted of.the Cooi.dinator and a part-time (20 hours per week) assistant. Recommendationswere-first approved by each committee and then forwarded to the entire Councilfor final approval.
It is anticipated that the Governor will share copies of the report with allstate agencies surveyed, requesting the heads of these agencies (and their sub-ordinate administrators)-to read it and respond to the recommendations relatedto their areas of responsibility. These respOnses will be shared by the GovernorCouncil for Spanish Speaking People, which will be monitoring this process.
Any recommendatiorv Which the Council may make that have.legislative implicationswt4.1 be forwarded to the.twcouncil members who are legislators for analysitand formulation of legislative proposals (bills, changes. iP :administrative rulesand regulations for specific agencies, and other appropriate measures).
'Recognizing its responsibility to share the, information contained in the report. with the Hispanic Community, and more specifically with those agencies, organi-
zations and individuals who expressed their views and.opinions at hearings or
1G_
through direct connunication, the Council will disseminate the report widely
throughout the state. In addition, a number of meetings will be held in cities
with a condentration of Hispanic populations. Individual Council.members will
be responsible for the coordination of these meetings and for the Most extensive
disseminationpossibie of the report in the area of the state where they reside.
An adequate supply of the final report will be available fordistribution to
interested parties.
41,
4
-46-
. REPORT OF THE EDUCATION COMMITTEE
1. Educational Communications Board
2. Higher Educational Aids Board
3. Departo4nt of Public Instruction
4. State Historical Society
5. University of Wisconsin System
6. Vocational, Technical and AdultEducation System
-47-"
1. EDUCATIONAL COMMUNICATIONS BOARD
Background Information
The Educational Communications Board (ECB), established originally as the
State Radio Council in 1945, received its present name in 1967 and was
established as an independent agency by Chapter 100, Laws of 1971. ECB has
the following-functions: L\,
a. Plans,, develops, constructs, operates and maintains the Wisconsin educa-
tional radio and televisicion networks;
b. Reviews, advises and coordinates the joint radio and television efforts
of educational agencies and institutions;
c. Acts as the central clearing house and source of information regarding
state educational radio and television;
d. Receives and disburses state, federal, and private funds and engages
or contracts for such personnel and facilities as necessary to carrY
out the aforementioned duties; and
e. Furnishes leadership in seturillg adequate funding for statew jide oint
use of radio and television f0! educational and cultural purposes.
A review of the literature in the Wisconsin Blue gook reveals that the agency
has sixty-two (62) employees and a biennial budget (197375) in excess of
$4.4 million. Only one (1) of these employees is of Hispanic background,
and this peilon is listed under,their office/clerical category.
In their response to'our questionnaire, ECB claims there were attempts to
fill 25 percent of 35 vacancies in the last three years with minority
persons. Still, it appears,that their recruitment efforts, which have been
traditional', have failed to produce-results. There is no evidence of serious
aggressive recruitment efforts. For example, while they predict three
vacancies for the next biennium (one administrator and two technicians),
they argue that it is unlikely that they will be filled with minority persons
because of civil service requirefients. This admission of failure in advance
negates any meaningful effort and contradicts the very intent of their affirm-
ative action plan..
-48-
Thus, it appears as if ECB is making no serious, determined effort to over-
come barriers in order to emplOy minorities. Moreoveri no program coordinn
ation exists with other agencies or institutions aimed at Preparing minbrity
personnel to assume such positions in the future.
The ECB has three major publications, none of which are published in bilingual
form. In their response, they give no sign of intent to publish anything
bilingually.
In the area of-programs offered to the general public, the agency operates
1the Wisconsin Educational Television Network (WETN) and the Wisconsin Educa-
tional Radio Network (WERN).
In their response to our questionnaire, the agency appears to have only made
contact with one Hispanic agency (United Migrant Opportunity Services) for
the purpose of getting "grass roots" input. Beyond that, there is no showing
of any other effort to get feedback from local communities on programming or
on how to best meet the needs of the Hispanic,community.
For example, in the WERN, ouf of 6,500 hours of programming during this
biennium, only 40 hours were devoted to Spanish irammIng. The WETN, out
of 5,000 hours, provided only 70 hour of ni h or bilingual programming.
During the last fiscal year, three major television Spanish/bilingual programs
, were broadcast: Villa Alegre, Acción Chicana and Carrascolendas. The latter
is the only one they intend.to.continue showing this coming year. It is also
a fact that there is no coordination between the ECB and local public school
programming. There have been claims by parent groups and school personnel
that programs like Carrascolendas should be shown at a time that could provide
for better utilization by the local public school bilingual programs.
However, there is no evidence'of any attempt by ECB to work cooperatively
with OPI or directly with selected school districts to promote better bilin-,
guil program utilization.
>
21
a.
-49-
Recommendations
A..ressive recuritment efforts should'be undertaken b ECB to ensuret e recru tment o ngua H span c personne n positions ot erthan clerical.
This recommendation requires a short-term response. The agency should
show how they propose to achieve this, with a specific timetable.
.0-b. ECB should be directed to wotk in coordination with training institu-
tions (e,43N1 VTAE districts, radio and TV stations) in the developmentand implementation of training programs that will produce Hispanicpersonnel in the various technicaT and management areas of employmentof the ECB. The agency should establish bilingual-traineeships and/orsponsor bilingual training programs.
c. ECB should develop g/process that will ensure continuous input fromlocal community and/or "grass roots" Hispanic groups in the area ofradio and television broadcasting. As a first step, a_person ofHispanic descent should be appointed- to the EducationaT Communicationsboard.
This recoMmendation requires hort7term response. It might also call
for changes in the agencY's operational policies.
d. ECB should survey Spanish/bilingual programming in other states withlarge Hispanic populations (CaIifornia,,Colorado, Texas, New York,Florida, etc.) and.acquire a larger reeertoire of programs with rele-vance to the WisLonSin Hispanic community for WETN and WERN broadcasting.
This recommendation requires ,the implementation of such a survey and
would require of ECB to seek input from local grass roots groUps and
individuals as to what is ."relevant programming" for the Hispanic commu-
nity. It would also require reallocation of funds to purchase the use/,
of programs. In order to facilitate a speedier implementation of this
recommendation, a list of radio and television stations.broadcasting
programs in Spanish it attached to this set of recommendations.
e. ECB should survey local Hispanic communities in the area for Spanish/bilingual radio broadcasting. Once they determine the need forprograms,ECB should assist or sponsor local community groups in their efforts toprovide such programming.
-50-
This recommendation requires a combination of short- and long-term
responses. Those surveyed should be local Hispanic community groups
and individuals concerned with radio programs in Spani$h, as well as
producers of existing Spanish radio programs.
f. EC8 should give serious consideration to the radio and television pro-
duction and broadcasting of special educational programs addressing
immediate issues affecting tbe Wisconsin Hispanic community.
In particular, a special set of programs about bilingual-bicultural
education 'ihould be developed, in coordination with the Department of
Public Instructioo, aimed at preparing Wisconsinites for the implemen-
tation of and compliance with Chapter 395, Wisconsin Laws 1975.
Regarding the bilingual-bicultural information programs, an immediate
response is necessary because of the closeness of the date when the
legislation comes into effect (July 1977). Monies might need to be
allocated for this purpose. Cooperative efforts with DPI, UW System,
and VTAE will be required, but ECB should take the initiative to carry
out these efforts.
23
1 -51-
RADIO STATIONSOCASTING MORE THAW10 HOURS IN SPANLSH4
AZ' KFBR FM 8X 340 Nogales 85621
KIFN Drawer 20644 Phoenix 85036
KEVT 48 E Broadway Tucsom 85701
KXEW BX 2284 Tucson 85703
KYUM Yuma
AR OHM BX 143 Fort Smith 72901
CA KGEE BX 937 Bakersfield 93302
KWAC 5200 Standard Bakersfield 93308
KROP BX 238 Brawley 92227KCHJ BX 1000 Delano 93215KROU BX 157 Dinuba 1 93618
KLIP BX 573 Fowler ' 93625
KXEX Fresno
KAZA 7459 Monterrey Gilroy 95020
KREO Drawer-K Indio 92201
KLBS BX 672 Los Barios
KXEM McFarlandKOXR 1208 S. Oxnard Blvd. Oxnard 93030
KTIP BX 1450 Porterville 93257
KCTY BX 1939<
Salinas 93903
KRBG FM 133.Geary San Francisco 94108
'KALI San Gabriel
KOFY San Mateo
KONG BX 3329 Visa a 93277
KOMY .BX 778 Watsonv . 95076
, KUBA BX 309 Yuba City 95901
CO KAPI 2829 Lowell Blvd. Pueblo 81003
KRSC 218 Broadway Denver 80201
CT WYRM 1056 Willard Ave New Britain 06111
WATR.FM 440 Meadow ,Waterbury 06702
FL WHRS FM BoyntonWCOF ImmokateeWLTO MiamtWQBA 1301 SW 1st Miami 33152
ID. KCID BX 1175 Caldwell 83605
IL WEDC 5475 N Milwaukee 61-- Chicago 60630
WCRW 2756 Pine Grove Ave Chicago 60614
WBSC 2400 W Madison Chicago 60612
WOPA 408 S Oak Park Oak Park 60302
LA WJMR 1500 Canal New Orleans 70140
MA WCRX FM 70 Chestnut Springfield 01103
NH,NJ
WBBXWCAMWHBI FM
1555 IslingtonCity Hall .
PortsmouthCamdenNewark
03801
08101
07101
NM KAMX AlbuquerqueKBAD BX 70 Carlsbad 88220
KCCC 1206 N Mermod Carlsbad 88220
KOBE Orawer X Las CrucesKFUN BX 710 Las Vegas 87701
KABQ Albuquerque
2
-52 -
`\
de,
NM.
NY
OHPA
TX
KTRCKSYKWADOWHOMWZAK FMIITEL
KOPYKRAYKIBLXKUBKBEWKCCTKUNO
BX 2227Drawer K .
205 E 42nd136 W 52d1303 Prospect Ave
BX 731
BX 1816BX 700BX 1300105 S 5thBX 5206Drawer 4722
Santa FeSanta RosaNew York CityNew YorkClevelandPhiladelphia _
AliceAmarilloBeevilleBrownfieldCarrizo SpringsCorpus Christi
. Corpus Christi
875018843510017TQ019`44115
783327910578102793167783478405,
KDLK 10.1384 Del Rio 78840
KDHW BX 608 Dimmitt 79027
KLFD BX 490 Floydada 79235
KBUV FM Fort Worth 76101
KGTW BX 100 Georgetown 78626
KGBT Harrington
KPAW Drawer 1757 Hereford 79045
KRME BX 467 ,- Hondo 78861
KINE BX 846 Kingsville 78363
KELE FM BX 30 La Mesa 79331
KUOZ BX 1638 Sta 1 Laredo 78040
KPET Lamesa
KIRT BX 985 Mission
KMUL BX 486 Muleshoe 79347
KGWB BX 593 New Braunfels 78130
KVWG BX 938 Pearsall 78061
KIUW BX 469 Pecos 79772
KGUL BX 386 Port Lavaca 77979
KCLR BX 669 Ralls 79357
KFRDKSJT FM BX 1296
Ros-enberg.San Angelo 76902
KCOR 411 E Durango San Antonio 78204
KEDA 226 1/2 Dolorosa San Antonio 78205
KUKA 501 W Quincy San Antonio 78212
KCWY BX 2150 San Marcos 78666
KWED BX 989 Seguin 78155
KTUE BX 169 Tulia 79088
KVOU Uvalde 78801
VT WRUV Burlington
/
Az
CA
DE
. IL
MANJ
NY
PA
TX
$ -53)
TELEVISIOU STATIONS_BROADCASTING SPANISH PROGRAMS
KPAZ-TV Channel 21 38471. Thomay:Road Phoenix 85018
KCUN=TV Channel' 9 BX 5247 Tucson 85703
KBZU-TV Channel 13 BX 1501 Yuma
KBAK-TV Channel 29 2210-Chester Ave. Bakersfield 93301
KMBC-TV BX F Calexico 92231
KICU-TV 261 W.'Broadway Fresno 93701
KLXA-TV Channel 40. 816 M. Highland HollYwood 90038
'KXTV-TV Broadway .Sacramento 95818
KFTV-TV Chanhel 21
.400
721 W. Bronson Hollywood 90038
KMEX.JV Channel 34 721 N. Bronson H011ywood 90038
XETV 7th & Ash, TV Heights San Diego 92101
;KEWT4V BX 966 San Ysidro 92073
WHYY-TV Channel 12 5th & Scott Sts Wilmington 19805
WCIU-TV Channel 26 141 Jackson Blvd W. Chicago 60604
WGN-TV 2501 West Bradley. Chicago 60618
WLS-TV 190 North 'State Chicago 60601
WGBH-TV Channel 2 125 Western Ave. Boston 021 34
WWJU-TV: Channel 47 1020 Broad St. Newark 07102
WXTV Channel 41 641 Main St.. Paterson ,07503.
WWED Channel 17 Hotel Lafayette Buffalo 14203
WCWY Channel 24 Old Liverpool Rd- Liverpool 13088
WWET Channgl 13 304 W. 58th SL' New York 10019
WWXI Channel 21 410 Alexander St. Rochester 14607
WMHT Channel 17 BX 17 Schenectady 12301
, WQkW Channel 54 Waterford Pike Erie , 16599
WITF Channel 33 BX Z Hershey 17033
WQED Channel 13 4802 Fifth Ave. Ptttsburgh 15213
WUHY Channel 35 454844arket St. Philadelphia
KERA-TV Channel 11 3000 Harry Hines Blvd Dallas 75201
XEJ-TV BX 9555 El Paso 79985
KGBT-TV Channel 4 BX 711 Harlingen 78551
KTRK-TV BX 12 Houston 77001
XEFE-TV BX 1484 Laredo 78041
KWEZ-TV Channel 41 BX 9225 San Antonio 78204
KRGU-TV Channel 5 BX 626 Weslaco 78506
SOURCE: CABINET COMMITTEE ON OPPORTUNITIES FOR SPANISH SPEAKING PEOPLE
,
2.* HIGHER EDUCATIONAL AIDS BOARD .
Background Information
The.Higher Educational Aids Board (HEAk issrecognized as a primary vehicle
in the disbursement of loaq and grants to needy students in the State of
Wisconsin.
Although HEAB recognizes that there are sufficient numbers of Potential
Hispanic-students our analysis of avai)'able data reflects the following:
a. The total number of Hispanics hired by HEAB sinte 1970 has been four.,
and now stands attwo.- Roth Hispanic counselors are,based in Milwaukee.1*
Hispanic staff has been hired at entry.level positionSand hasvna been
promoted; therefore, they:do not have any policy-making role within the
agency. .There apPeart tO be nO direct participation in the decision--
making process by Hispanic personnel. The present available,Hispanic
staff does not havethe human resourteS:needed tO adequately serye the,
.entire southeastern corner of the State where:the biggest Concentration
of Hispanici'reside.
. Data is unavailable to ascertain what numbers of HisOanic students are
actually helped (type of loanigrant, short/long term, continuity-of
,assistance for Hispanit students). Data is unavailable to compare what
portion of the total monfes allocated is disbursed to Hispanics.
c. Data presented to the GovernoesCouncil indicates that a large number of
Hispanic4students are being counseled, but a specific correlation as to
how many of thtse actually receive grants/loans is not available. Data
is needed to specifically identify the fields of study in which Hispanos,
are involved. Information is not available as to what specific obstacles
are encountered in matching traditional, rules-oriented loans/grants with
non-traditional students. Solutions are not.provided as to innovative'
ways of impacting,on non-traditional students. No data is provided to
verify percentage of success or failure in matching Hispantc students
with grants/loans that have a measure of continuity.
27
.1/
-55-
d.. Recruitment practices as Well as information dissemination leave much to
be desired. Inferior translations, such as the sample provided with the
data, are destined to fail because they indicate no commitment to
utilize resources toward effecttye advertieient . Data provided related
to recruitment is too traditional and appea to be gathered in a compla-
cent manner. There is no indication-in infomation provided at
follow-up activities are indeed conducted.
e. Coordination with institutions (and specific programs within these
institutions, such as UW-Milwaukee's Spanish'Speaking Outreach Institute
and Milwaukee Area Technical College's Advisory. Program, etc.) that
normally make availeble lists of students who are likely candidates for
HEAB's assistance cannot be corroborated; although the report seems to
indicate that direct communication and coordination exists between them
and HEM.
. Out of sixty-seven (67) employees, three (3) are Hispanic. Two are
employed at the same level (counselors), and one is in a clerical
position.
Recommendations
HEAB should be directed to employ additional Hispanos, some of whomshould be hired at decision-making levels in administration, to moreeffectively serve the Hispanic population in the State of Wisconsin.
Additional staff is needed to serve the increasing number of Hispanos
who are gradAting or will graduate from high school and pursue careers
in post-secondary institutions. (Chapter 395 -- Laws of 1975 --
Bilingual-Bicultural Education -- should have a positive impact on the
numbers of Hispanic high school graduates over the next 5 -- 10 years.)
Numbers alone will not,suffice; effective use of whatever personnel may
be available will be needed to serve Hispanos adequately. This means,
in part, that HEAB staff working with Hispanic students should be given
enough flexibility to carry out their duties. ,Non-traditional methods
will be required to reach this non-traditional clientele.
28
-56-
Unnecessary bureaucratichindrances, such as confining staff to an office
and limiting their access to potential clients, must obviously be elim-
inated. More importantly, given its limited resources, HEAB must actively
IP .
search for ways to COoperate with other programs and/or agencies which
are also recruiting students for post-secondary education.
Joint sponsorship ofspecial events, such as career lays, and other
cooperative ventures should be included here.
Implementation of this recommendatippowill require documented changes
-in agency policy, reallocation of funds, and.Hispanic staff at 'decision-
making levels of employment.
b. HEAB should conduct longitudinal studiesfliat will'reflect accurately.
the ;lumber of Hispanic students who benefit from the services and
disbursement of funds-that HEAB is created-tor.
,Specific, accurate and concise data on the impact of HEAB s,efforts on
Hispanics must be provided by HEAB to the Governor. The response
requested should be a c*natfon of short-term and long-term. Specific
data will indicate at a glance true progress C>N.que failure in serving
Hispanics and help to plan for better services over the next several
years.
Implementation of this recommendation WU require reinterpretation of
agency policy, reallocation of existing agency staff and/or, funds.
c. Studies that correlate impact of services of HEAB on Hispanic students
with prbjections on how to serve Hispanic students in the future should
, be made available toothe Governor and other pertinent agencies, e.g.,
DPI, VTAE-, UW System.
A combination of short- and long-term responses is required. A report .
covering the period from 1973 to 1977 ihould be requested from HEAB with
a deadline Of June 1977 for submission of the saMe. This entails
interagency request and a minor reallocation of existing agency staff
and funds to carry out this recommendation.
2,9
-5.7-
d. To have an effective impact on the Hispanic population of the State ofWisconsin, HEAD must conduct an aggressive, well-planned and coordinatedrecruitment,effort, which should be connected to an informationalcampaign, with adequate-human and material resources and documentedfollow-up activities.
Documented evidence of the coordinated and planneCrecruitment campaign
should be made available to the Governor in order that the magnitude
and innovations of the concentrated recruitment effort may be ascertained.
Additional staff with adequate resources are needed to conduct and
establish an effective recruitment campaign statewide. Cooperation with
community Agencies serving Hispanos as well as e Hispanic media (radio,
TV, newspapers) will be needed.
e. HUB should be directed to organize a statewide referral network whichwill include traditional as well as non-traditional institutions, tobenefit flispanft students in the State of Wisconsin.
No coordinated statewide arrangement presentlyexists between those who'.
MUst deliver-benefitt/serVices,and.recipients. ,Communication, as presentlt
establithed and practiced, Is informal. No formal follow-up actiVities
.exist: Outreach activities.appear to be inadequately conducted.IP
The result involves a combination of short- and long-term responses.
Establishment of a HispanicStudent,Statewide Referral System can be
achieved through:existing program's, offices, etc. An adminis:trative
order may be necessary to establish the network; minOr changes iniagency
policy, and a reallocation o*f new staff and resoUrces should be contidered.
Cooperation with 011;i0TAE districts, and UW System campuses will'be
required.
Evidence of progrest should be a Plan-for the.network and steps toward
impleMentation.
-58-
3. DEPARTMENT OF PUBLIC INSTRUCTION
Background Inform(tion
Information available .from the WitConsin Blue Book (1973775), shoWs tbat the..
Department of:PublfclnstruCtion,(DPI) has a biennial budget of. $1,128,090,.500
and a total of 644.:6 employees. It further describes.the agency's main
responsibilitYyls that of Providing :11rection and supervision of publtc
elementary and secondary:education in:Wi$cOnsin, and alf planning, implemen-
tation, and fiscal resPonsibilities that go with $uch function.
Of the six divisions in the agency, the Division of Instructional Services
is of utmost importance as it relates to the educational needs of the
Hispanics. It is the division responsible for curriculum, pupil services,
federal instruction programs, vocational education and the one that provides
teacher licensing and certification. With the.recent passage of the
Bilingual-Bicultural Education Act, Chapter 395, Wisconsin Laws, 1975, an
additional function is assigned to this Division. The new legislation
mandates DPI to develop guidelines for the implementation of the law and
also provides for a fiscal appropriation for a bilingual-bicultural educa-
tion consultant.
As far as employment is concerned, DPI has hired an education consultant
for migrant affairs, a Hispanic person in a clerical, position and a bilin-
gual-bicultural education nsultant. Still, there seems to have been no
other effort made by DPI to recruit and hire Hispanos.for any vacancies in
the, agency, other than those they were compelled to make in response to
mandated programs.
Th eir affirmative action plan leaves much to be desired if one is to
ge not the plan itself, but the results generated by its implementation.
Out 644 agency staff, two (2) or even three (3) Hfspanos is an insignifi-
cant, if not ridiculous, figure.
It appears as if DPI has nO,mechanics for the gathering of speCific data
retative to Hispanic pupils in the state. In their response to the question-
naire sent by the./Governor's Council for Spanish Speaking People, it is
41.
clear that whatever data is kept on Hispanic pupils is inaccurate and-poor.
There is no data on the Hispanic "dropoUt," while there is4ata given on
the total number of dropouts for the state.
There is no data on bilingual testing and evaluation; thereis no breakdown
of data on Hispanic Title I participants, ;or for other programs vis-I-vis
seryicet to Hispanos. 44
When questioned:on the issue of compliance With the Lau ReMedies1 set forth
by the HEW Office of Ciyil Rights (OCR), DPI's fesponse only states that a
DPI. consultant has explained the Lau mandate to a handful of-districts. It
is certain that DPI has not taken a definite position on. compliance with Lau,
and is offering no leadership to school diaricts,,nor providing.any direct
assistance to those districts that are obviously in'violation of the OCR
mandate. it would be devastating if, now that we have a state Bilingual-
Bicultural Education Act, DPI does not take the initiative to assign the
necessary personnel to inform school districts about their obligations under
; thelaw Ind to help them plan for the implementation of the act.
One final item of importance is that of bilingual-bicultural teacher train-
ing programs. DPI has played a very traditional role in this area'. They
have waited for university people to come forth seeking assistance.on the
development ofprograms.. In the,past, DPI has not gone out to training
institutions to request the development of more appropriate programs to'
lin January 1974, the United States Supreme Court unanimously ruled that failure
by the San Francisco Unified School District to provide meaningful educational
experiences to children of limited English-speaking ability constituted a viola-
tion of Title VI; Sectionfi01 of the Civil Rights Act of 1964 (414 U.S.563).
Later in 1974, the Office -Tor Civil Rights of the Department of Health, Educa-
tion and Welfare commissioned a task force of experts in the fields of eduCation
and law to prepare a set 0 guidelines which OCR might use for internal review
of compliance plans submitted by school districts found to be in violation of
the Lau mandate. The Lau Remedies, issued in the Summer of 1975, are the
product of that task force's deliberations.
32,
-60-
address the requirements set forth in the Bilingual.,Bicultural.Education
iAct. Of particular urgency in this area are( (1) the need to develop
appropriate certification standards and prOcAdures for bi.lingual-bicultural.
personnel, and (2):the establishment of teacher training programs, at
colleges'and univiersities which willo.turn Out qualified and certifiable
bilingual-bicUltUral teachers coUnselors and other personnel.
ReCommendations
a. DPI should initiate an aggressive recruitment and hiring program aimedat increasing_the number of Hispanic personnel in the agency, at alllevels of employment. A specific plan should be prepared as to how thiswill be accompTished, with a description ofappropriate resources and atimetable for implementation.
This recommendation calls for a short-term response. It should not
require major changes in agency policy or operation. It is not accept-
able that DPI, with its.number of staff, has 'not hired more Hispanos.
It seems that their'AffirMative Action.Plan is merely another plan with
little, if any, evidence of results in'the hiring of Hispanics.
b. DPI.thoUld establish an internal mechanism for the gathering and collec-tion of data on.Hispanic pupils on a statewide basis with particularemphasis to be placed on bilingual-bicultural education: needs, devel-opments, accomplishments, and evaluation. Such'techanism should be anintegral part of DPI research efforts, and a summary or analysis of thedata colTected should be published and distributed on a yearly basis.Specific data On Hispanic pupils and personnel as affected by the totalWisconsin educational"system should be compiled.
This -recommendation would take a combination of short-'and long-term
respoises. A commitment must be immediately made to move in the direction
recommended. The implementation and supervision of the above should be
tied into the office of the bilingual-bicultural education consultant
and his/her staff, if available., Cooperation With other agencies; e.g.,
HEAB, VTAE, and the UW System will be required,
c. DPI should initiate an informational campaign throughout the state to'advise school districts that could be affected by the Bilingual-Bicul-tural Education Act of their obligations under the new Taw. DPI shouldassist such districts in the establishment of bilingual-bicultural Programsprior to September 1977.
33
-61-
This recommendation calls for a short-term response. Districfs must be
informed immediately (i.e., before Match 1977) of their obligation to
take a census and develop programs prior to July 1977. DPI could initiate
an informati4n campaign using the media -- press, television, radio --
and direct contact with the districts that'appear likely,to need
bilingual-bicultural education programs. It is also important that the),
give more assistance to those who already have programs but which,
apparently, still have questions about the legislation.
This recommendation would not require major changes in policy and opera-
tion of the agency. It mainly calls for the assignment of personnel to
do what has been-described above. Cooperation with the Educational
Communications Board and UW-Extension (WHA Radio/TV) will facilitate
carrying out this recommendation. .
d. DPI should ensure input by the commUnities affected in the implementa-tion pf-the Bilingual-Bicultural Education Act througb_the establish-ment of a permanent state Advisory Council on Bilingual-BiculturalEducation. Rules and guidelines for the implementation of Chapter 395should be approved by that council prior to submission for action bythe State Superintendent.
This recommendation might call.for an allocatien of monies 6 DPI for
the Advisory Council. It is,very possible that there will be expenses
(mileage, lodging) incurred by the council members.that DPI will have
to reimburse.
e. DPI should establish an internal mechanism, as an integral part of itsadministrative and organizational structuret to assure compliance bylocal school districts with Chapter 395. A 'Bureau of Bilingual-bicultural Education" shouTd be established under the Division forInstructional Services equ(pped with'the appropriate s aff to assistthe bilingual-bicu)tural education consultant in carry1.'q out the
. legislatfve mandate.
This calls for short-term and long-term responses. The agenc might
have to make certain operational and policy changes to allow for the
establishment of the Bureau on bilingual-Bicultural Education.
-62-
There is no doubt that the tnk to be done relative to compliance with
Chapter 395 is a difficult, complicated one and that the workload cannot
be carried on by just one,bilingual-bicultural education consultant. It
would be most appropriate to hire an aSsistant to the consultant and to
provide the consultant with clerical and office assistance as well.
Moreover, if the state is to derive its share of federal funds devoted
to bilingual education, technical assistance will have to be provided
to school districts in the preparation and submission of proposals to
HEW (Office of Bilingual Education). As additional funds, in the areas
of career education, vocational education, and others become available,
more staff time will be required to effectively monitor the search for
these federal monies. Additional staff thus becomes a necessity.
f. OPI should work in coordination with local colleges and the WisconsinUnfversity System in the development and/or,improvement of bilingual-bicultural teacher/counselor training,programs. Such vojects shouldbe given assistance and should be advised as to the kind of academicprograms needed to ensure theiuture bfl-ingual-bicultural teachers Ole
appropriate state license and certification.
This recommendation calls for short- and long-terms responses. DPI needs
to take the initiative in getting colleges and universities, especially
certain Units in the UW System (Milwaukee, Madison, Oshkosh, Parkside
and Whitewater), to prepare the necessary personnel for bilingual-.
bicultural programs.
The recommendation does not call for major changes in the agency but
does require that they move quickly on the matter even if it requires
the reassignment Of staff or hiring additional staff to do so.
g. OPI should cooperate with the Department of Natural Resources in dissem-inatfng'fnformatfon about the Youth Conservation Corps Program toHfspanic high school students throughout Wfsconsin.
The Department of Natural Resources should publicize information about
this youth program among Hispanic high school students. DPI should
cooperate with DNR on this project.
4. STATE HISTORICAL SOCIETY
-63-
BackgroUnd Information
41 The State Historicai Society of Wisconsin is responsible for the interpre-
,tation of the history of the State of Wisconsin. Activities which the
Society accepts as its domain include collection of artifacts,.restoration
projects, and organization of museums highlighting Wisconsin's historical
phases; According to information submitted to the Council, their main
emphasis is on the period prior to 1900. The period beyond 1900 is not yet
programmed as part of their scope of work, although their work mentions
two projects that were for the most part events.that had no continuity or
iong-range purpose.
Walker's Point in Milwaukee's south side is an area marked'for restoration.
'The Society has begun extensive plans to restore several buildings in the
Walker's Point area. Walker's Point is where the highest.concentration of
Hisparns reside in Milwaukee's south side. For many years Walker's Point
was allowed to deteriorate and became an area of the city where indigent
Hispanos and others'resided. The area is now considered an area of interest
by the Historical Society because Walker's Point was one of the early
settlements which later became part of,the City of Milwaukee. Projects
that have been fuoded in the Walker's Point'area have not been aimed
directly at the Hispanic comMunity, although Hispanos are nonetheless'
directly affected.
In addition to the thousands of immigrahts from eastern, southerh and
western Europe, who settled in Wisconsin, Hispanos began to arrive in the
second and third decades of this century and continued to immfgrate or
migrate throughout the 50's, 60's and into the 1970's from Mexico, thek
southwest, Puerto Rico,:as well' as*Central and,South America. The Socilbty
has so far toncentrated its efforts on the experience of 19th century
immigrants to Wisconsin.
36
-64-
Recommendations
a. The State Historical Society gl Wisconsin should be direbted to prepare
a historical project which wi 1 seek to research, collect, and establidh.
a permanent display that wllJ preserve the Hispanic historical experi-
ence in the State of Wisconfln.
The following are prerequisites to implement the recommendation:
(1) ,Establishment of a statewide Hispanic advisory committee that will
advise the State Historical Society of Wisconsin on all matters
related to the history of the Hispanic community in the State of
Wisconsin:
(2) Premation and displays of the history of Hispanos in Wisconsin --
their experiences and contributions to the state's development.
(3) Resources need to be made available to prepare instructional pack-
ages for school districts, organizations, and the general public
on the historical experiences of Hispanics in the State of
Wisconsin:.
b. The State Historical Society of.Wisconsin should be directed to make',:
a policy statement that it is the intent and priority of the Society
to encompass the historical experiences of Hfspanics in Wisconsin.
Drastic change in agency policy is probably not necessary since infor-
mation made available to the Council does not indicate that the
Historical Society is limited to.specific activities. The Socigy,
however, should provide documented proof of the additional emphasis
and incorporation of Hispanic historical concerns as part of their work
scope.
c. The State Historical Society should establish a collection of historical
documents, books, and films that will be available for utilization by
Hispanic communities and the general public to enhance an awareness of
the origins and present reality of Hispanos in the State of Wisconsin
within a national perspective.
The following steps are required:
37
-65-
(1) That direct input be provided to the Historical Society by persons
with expertise in this area as to thequality of materials to ,be
bought. Further, a tWo to four-year plan of acquisition of materials
related to Hispanos should be developepy the Historical Society.
(2) That materials be organized and distributed in such a manner that
they will be known and utilized by.Hispanos. Coordination with DPI,
the UW System and other units of government will be required to
implement this recommendation.
Existing materials available related to Hispanic groups will be identi-
fied and added to the list of materials being collected.
d. The State Historical Society should actively search for funds from the
Ethnic Heritage Studies Act and4ther sources (public and private) to
establish a statewide project wffich will highlight the history of'
HASpanos in Wisconsin.
Federal (and other) funds should be sought to finance a project which
will conduct research on the historical background (written and oral
history) on the origins of the Hispanic community in Wisconsin.
Curriculum materials for use jn instructional programs (K-12, post-
secondary and adult education) should be developed, along with other
products to be used in other media (recordings, videotapes, photography,
etc.) to disseminate information about Hispanos in Wisconsin.
The cooperation of the Department of Public Instruction, selected units
of the University of Wisconsin System and others will be needed to
carry out this recommendation. The State Historical Society should
assume the leadership in mounting this funding effort with the assistance'
of the units previously mentioned.
The recommendations require a change in agency direction; orientation, and
awareness with a perspective that should encompass contributions.by a
variety of immigrant groupf. New staffing and allocation of funds are
necessary to implemfnt the recommendations. Projections.and specific target
dates should be designated for completion of this project.,
38
-66-
5, UNIVERSITY OF WISCONSIN SYSTEM
Background Information
.
Although available datasindicates that m4nority students are reaching the
Wisconsin University campuses in higher numbers, the same data does not
provide conclusive indicators as to percentages of attrition, percentages
of retention, fields of study, employability of graduates, graduate"studies,
continuation. The experience of Hispanic students with the University of
Wisconsin System, therefore, remains undefined due to the critical limita-.
tions of available data.
What is evident in Idata made available to the Governo's Council for Spanish
Speaking People is that there has been no defined or deliberately implemented
plan of action for the wide spectrum of Hispanic citizens in the State of
Wisconsin.
In June 1972, the UW Board of Regents, through the efforts of a "Regent Ad
Hoc Committee for Minority and Educationally Disadvantaged Students," made a
series of policy recommendations based on information obtained at a series
of public hearings, as well as research by central administration and others.
The report represents a lauda0e step to address the needs of minorities
(the.report concentrates on "Native Americans, Blacks, and Hispanos"), but
has a major flaw because it fails to set measurable quantitative goals by
which progress could be mfasured.
Four years later, the UW Board of Regents has enacted another set of policy
recommendations to improve services by the UW System to racial and ethnic
minorities for a period of-Tive years (1976-1981). This time some quantifi-
able objectives have been established on increased minority enrollments and
increased numbers of baccalaureate degrees. Other areas covered by the
report include American ethnic studies courses, interagency cooperation
(UW System, HEAB, and DPI) but for these, and others, once again there is
a lack of specified and measurable objectives and timetables; and no unit(s)
or agencies halie been assigned responsibility and deadlines to carry out
-the Board's mandates.
39
lh
Continuation of uncharted actions by institutions with iuch potential as
the Univerldty System borders on the irresponsible since a significant amount
of state and federal resources is said to'be allocated to impact upon
minority students in the State of Wisconsin. Hispanic students are reaching
most campuses throughout the State of Wisconsin, even thoubh there is a
concentration of Hispanos in the southeastern part of the state. Hispanics
continue to demonstrate their high expectations in higher education. Avail-
dble dita provides conclusive evidence that a nurper of Hispanic students
are benefiting from the resources Oat certain camPuses have specifically
allocated. And, although the resources allocated for outreach activities
have produced a high level of enrollment of Hispanic students, retention
track records by programs are poor and too often students experience dismal
failure and frustration due to minimal supportive'Services. The University
System must continue to be innoVative in impacting upon non-traditional ,
students in'non-traditional manners. Higher enrollment of Hispanic students
cannot be the ultimate indicator of success by the University of Wisconsin
System. The University's commitment in truly providing educational oppor-
tunities must be measured in terms of resources allocated within a clearly
defined policy and plan of implementation, significant numbers of graduates
in a variety of fields, employability of graduates and permdnency/continua-
,tion of higher education plans.
The indicators of continued effort in providing minimal resources which pro-
duce minimal results must be analyzed in the historical and present context.
The simple, automatic continuation of programs which emerged as reactions
by educational systems to theunrest Of the sixties cannot be justified in
the thoughtful seventies and beyond. There is clearly an imminent danger
for the minimum to become the maximum. The experiences of Hispanos with the
University System are indeed similar to the experience of Black citizens
with higher education in the State of Wisconsin. Hispanos are absent from
campuses' personnel data. Hispanos have little or no input in University
concerns. Hispanos are not involved in decision-making roles as to University4
matters. Wisconsin's University System haS indeed a long way to go, and the
Governor's Council for Spanish Speaking People urges that the University of
Wisconsin System begin a new era in whic,,, through a defined plan of action,
40
-68- .
lk
Hispanic citizens will benefit from the effective utilization of the Univer-
sity of Wisconsin System's resources.
The recommendations that follow address areas of concern based on an analysis
of-aa made available to:the Governor's Council for Spanish Speaking People.
In our judgment, they represent some of the critical areas which should be
-4considered in preparing a comprehensive higher education plan Of acticm for
Hispanos in Wisconsin:
Recommendations .!
Student Enrollment/Recruitment
/ f
(1) The UW System should intensify efforts to incre'ase the enrollment *
of Hispanos at undergraduate and graduate levels at rates which
are comparable to the established Regent qtlicy (June 114 1976)
' for minority enrollment. Primary responsibility for achieving
this goal should be placed 9n those units (four-year cameuses,
Tia&al cluster institutions, two-year centers) located in geo-
graphic areas of the state where sfgnif'cant concentration& of
Hispanos reside: Oshkosh. Parkside, Wh'tewatdr, Madison, Milwaukee,
and the UW-Center at Waufesha.
The numbers ofHispanic students graduating from high school has
increasPd over the past thiee years, although exact data is not
available from DPI: The establishment of bilingual-blcultural K-12
education programs tn Milwaukee's public schools ha; been Partly
responsible fOr'this., It is reasonable to expect that as bilingual-
bicultural programs are established throughout the public school ,
,system in Wisconsin (1977-1910, the numbers of Hispanic students
graduating from high,schools ;ill also increase. An Optional pool
of Hispanos eligible for admission to 'higher education will consist
of adults past high school age for whom non-traditional, extended
degree programs will have to be developed over the next several'
years.
Enrollment of Hispanic students in the UW System has increased from
:323 (1970-72) to 842 (1974-75) which amounts to 14 percent of the
total minority enrollment of 5,879 in 1974-75.
4
-69--
The recommendation requires a combination of short- and long-term
responses: Increased.efforts by existing recruitment programs and
'additional resources to*be allocated to these or newly established
programs both in the'1977-79 and in the 1979-81 biennial budgets.
Comparable or commensurate levels of enrollment.goals (13 percent
yearly for five years) projected for all minority students will
indicate progress.
In order for this goal to be met, the percentage on a campus-by-
campus basis may well have to exceed 13 percent. Indeed, it is
quite possible that some campu9es may have to double their Hispanic
student population in order for the 13 percent goal to be met
systEM-wide. Special eftorts will be required by all campuses
listed above in this regard.
Interagency cooperation required includes HEAB and DPI. Internally,
it also requires:
.,(a) Reallocation by indidigual Ompuses of staffing and funds;,.and
.(b) New staff and,additilik funds. '
\*4
In order to reduce the numbers of minority- tudent dropouts, the UW
System should take the initiative to develop pilot demonstration
precolleglqte programs (in cooperation with DPI and the VTAE System)
which Will be aimed at high school populations. Two or three pilot
programs s ould be developed .and provided with adequate resources
over a three- to five-year period. If successful, additional efforts
would be channeled in this direction. This would be in accordance
with established Regent policy (June 11, 1976).
(2) Recruitment efforts by units within the UW System must beiconcentrated
on local Hispanic communities and school districts with significant
Hispanic enrollment.
Individual campuses conduct enrollment efforts independently of other
unitt within the UW SysteM and other state 'education agencies; e.g.,
HEAB. There appears to be minimal cooperation, if any, with DPI.
Moreover, special recruitment efforts are often aimed at mit-of-state
4
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studentt, with Chicanos in southWestern states as the main target:
:-I.ittleTeffort7appears-to be made to exhaust the local pool of-students -*------
who are state residents, who should bethe primary beneficiaries of
the UW Syttem's Programt and services. While ft is recognized:that
Some UW SysteM units attrattStUdents'Aationally/internatinnallY,
efforts must also be directed at the entire spectrum.e.Hispanns
the United States. Thus, only after the local (state) pool of poten-
tial applicants is exhausted; should undergraduate and graduate ,
recruitment bte directed on a regional (Midwest) basis,and also toward
the, eastern seaboard. This is not the case at the present time.
Measurable progress will be the numbers of Hispanic students, in
addition to Chicanos from the southwest, who are enrolled in the
UW System on a yearly basis from 1976-1981. 4
Inter-unit (within the UW System) cooperation will be necessary in
varioui units, including reallocation of staff and resources to
areas previously neglected.
A related recommendation, which has implications which go beyond
the needs of Hispanic students, might be that a Minority Student
Referral System be established within the UW System. Lists of
minority applicants, would be shared among interested units so that
studentt who might not be admitted to a given program in any single
unit might be considered by another unit. A specific unit within.
the UW System would have to be detignated to act as eclearinghouse/
data bank for minority applicarits, with.lists derived for applicants
from the various minority groups (Black, NaIive American, Hispanic
American, Asian American). The UW Board of Regents should re4uest a
feasibility (and cost analysis) study on this concept to be done by,
UW Central Administration during the 1976-77 academic year. This
,would form the basis for planning and implementation in the 1977-79
biennium. Cooperation between the UW Zystem and the HEAB will be
needed, and.the UW System should be responsible for implementing
this related recommendation.
43
,71-
b. Staff Recruitment/Faculty Recruitment
--(1) The UW Systpm should increase its efforts-in the recruitment-andemployment of staff and faculty at all levels of responsibility,with special emphasis being placed in hiring_HispanoS for facultyas well as administrative, policy-making positions.
In spite.of affirmative action plaiis by each'major unit within the
UW System, Hispanos (and other minorities) continue to be 'severeli
underrepresented in most levels of employment (the only possible
exception might be the clerical or service/maintenance positions).
This-is perhaps most visible in the small numbers of Hispanic
faculty and academic staff, partitularly if we isolate from these
figures departments of Spanish (which often employ persons who,
although of Hi
permanent resi
background; may not be U.S. citizens or
A Cursory examination of the "New Hires"
report Which emerged from Senior Vice-Preiident Percy's office
(February 3, 1976) clearly documents the.lack-of substantial progress
in the area of affirmative action generally, and particularly Where
Hispanos and Native Americans are concerned.
Measurable prqgress will be evaluated by additional Hispanic
faculty and academic staff hired at all levels over the period
1976-1981.
Inter-unit cooperation will be necessary. .In this regard, a system-
wide employment .opportunity data bank could be established wherein
vitae'of prospective employees might be,listed foe use by any unit
of the UW System which may be searthing for persons to fill specific
vacancies. ,The program might be computerized and kept up to date
and could be patterned.after the UW-Extension's Equal Opportunity
Office,Nwhich keeps a numbered'list of resumes on file of potential
mtnority employees, or DOA's Project CONTACT2 Units witpin the UW
2See pg. 88 for description of Project CONTACT
4
'00
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System Would be asked to share resumes of persons whowrite to
inquire aboutpogsible opentngs-by-sending7them:ipto-acentralized
data. bank. Jri addition', other State employees 7light list them-.
Seli'iet in thOlope of transferring from One unit of state gaern-.
ment tO anothet., There .could be Other:functions, but the.main
purpose would be to establish a clearinghouse of available .
applicants to all UW System units. A specific vehicle,to iMplement
this recommendation should be identified oecreated (an office, a
faculty member or a group of faculty at one or more units of the UW
System, etc0 and adequate reSources should be allocateeto it,
including release time for faculty memberi or administrators. .
In addition, a Minority Junior FacUlty Oevelopment.Program should
be established by the UW System. This program, which could .be
patterned after the UC-Berkeley's program, would earmark funds for
release time for 10-15 junior faculty 'to do research which will help
them qualify for promotion'and tenure. Summer research grants and
one-semester career development grants would be awarded throughout
the UW System to minority junior faculty, and others, who are
diverted from their research because.they are in heavy demand for
counseling,committee mirk, other campus services4
and work with
Community groups.
C. Supportive Services
(1)That the,University of Wisconsin System provide and coordinate addi-
tional resources for academic and non-academic supportive services
for Hispanic studentts in order to ensure successful continuation
of studies. Innovative support services for Hispano programs must
be the primary responsibility of individual campuses.
Available data indicates that a number of campuses dollave programs
that include recruitment, learning skills, and counseling activities.
There is little evidence that any.of the Supportive programs include.
non-academic supportive services such as counseling and psychological
services.
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The recommendation necessitates an assessment of how effective ores-
era iupport-services have been,,a re-orientation of_goals and,
objectives of supportive services, and the establipment of non-J
traditional supportive services.
The recommendation requires short-term goals since individual
campuses are primarily responsible fof establishing supportive
services programs. Long-term goals are also required since the
intent is not only for students to be processed inAially but to
benefit from the continuity of available programs.
Inter-campus coordination among units providing availabie supportive
services for Hispanic students is indispensable. A unit should be
selected by the UW Regents to initiate and maintain coordination in
this area and en lppropriate timetable should be-established.
(2) The University of Wisconsin System should designate Oshkosh,; White-
water Ind Parkside and the Ult Center at Waukesha as "impact
campusesi" and. resources shOuld be designated over subsequent
biennia for purposes of planning, academic programs, faculty devel-
opment, and creation of innovative educational-service units that
will serve Wisconsin's Hispanic population through the preparation
of personnel in a variety offields.
The recommendation requires a policy statement from the Board of
Regents indicating commitment and support for long-range programs
and service goals related to the three specified campuses. Regents
must also incorporate these recoqmendations within projected campus
development plans since the interest is to establish educational
units which are completely integrated into campus structure.
"Special Programs" syndrome should be avoided in establishing
these ejiucational units.
Care must be exercised in preventing unnecessary duplication of
.effdrts by these campuses. Expansion of existing programs may very
well satisfy this need, and coordination among these units will be
needed for the most effective utilization of resources.
46
-74-
The. Milwaukee and Madison-campuses have on-going.prOgramSk_and_this. ...
recommendation should in no.way.be interpreted as recommendingAhat
no .additional funds be allocated to .them. On the contraryi'because
..of their unique,strengths geographical location, and as the two
majOr campuses with advanced graduate and/or professional, schools,
Milwaukee and Madison should continue_ic receive a significant share:
of minority and ,disadvantaged monies. Rather,.the Tecommendatton
'aims at a new effort, which would go beyond existing funding and,-,
programmatic levels,'through whiCh these campuses could deliver pro-
grams and services in academic areas where Hispanos are sorely needed
and where, traditionally, they have not enrolled in any stgnificant.
numbers. These units of the UW System would be increasingly sharing
the entire system's responsibility to better serve minorities,
specifically Hispanos in this cate. As an initial step in this
direction, special programs; e.g., a five-year program, pre-law and
prgqnedicine, business, nursing and other teChnical fields, should
be established or expande4 in each of these selected campuses,.
Long- and short-range goals are involved in the recommendation.'
Evidence of implementation must come in the form of specific policy
statements by the Regents, drafting of an educational plan with input
from the Education Committee of the Governor's Council for Spanish
Speaking People, allocation of resources to initiate implementation,
and compliance with set deadlines related to the overall educational
plan.
31t must be stressed, however, that the Council found that most of UW-Madison's(and some of UW-Milwaukee's) programs to serve minority students in the areasof recruitment, tutoring, counseling, and other student services/lack anydefinite focus on Hispanic students. That is, no real emphasis'is placed on :
meeting the needs of Hispanos as a group. This situation is obviously
unacceOtable to the CoUn01.
(3) The UW System should _prepare an annual report on the participationand invplvement_pt Hfspanos in public,higher education in Wisconsin.
This comprehensive report should contain specific data from indivi-
dual campuses and other units as to the numbers of Hispanic students
enrolled, levels, number of faculty and distribution by rank,
programs (academic, supportive services, outreach, etc.) impacting
on Hispanos, with funding levels for each, attrition rates, numbers',
of graduates, and other pertinent information.
The need for this type of information is evident from the dearth
of longitudinal data on Hispanos, as a separate group among various
minorities. 'This report would be of use in planning for future
program development/expansion of services for Hispanic students,
faculty and staff by the UW Board of Regentsl, the UW Central Admin-
istration, amd individual units within the UW System.
A specific unit of the UW System should be assigned the task of
preparing this annual report and should be provided with adequatd
resources to carry it out in an expeditious manner.
This recommendation requires an administrative decision since reports
of this nature are already currently available for other target
populations, but not for Hispanic students.
The.recommendation also requires the cooperation of the various
campuses in order to provide current, reliable data on which future
planning and budgetary decisions will be based.
d. Academic Programs
(1) At the Madison& Milwaukee, Oshkosh, Parkside and Whitewater campuses,the UW S stem should romote the develo ment and ex ansion of courses,programs, an researc ocus ng on span c r cans, t e r er age
and experiences. Immediate attention and griority must be.given tobilingual-bicultural teacher training progfams.
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Courses in the area of American Ethnic Studies which pertain to
Chicanos, Puerto Ricans and other Hispanos, exist in varying numbers
.and quality at all of the institutions listed above. By and large,
these offerings are not part of a. specifically coordinated or degree
program within each campus, but represent efforts by individual
schools or departments within particular schools to respond to
g4requests by Hispanic students and/or community groups. Generally
speaking, the degree of activity within individual campuses is
directly proportional to the number of HisPanos on the faculty and
the number of Hispanic students there.
The recommendation requires a long-term response (1976-81) and
follows in the spirit of the UW System's plan for the development
of American Ethnic Studies. Specific indicators of progress made
to implement it will be the number of course offerings, degree
programs, research studies, and related activities (conferences,
symposia, lectures, etc.) generated'on a campus-by-campus basis.
Aggressive recruitment and hiring of Hispanic faculty for these .
programs and activities will have to be an indispensable component
of the UW System's (and of each indlvidual campus') efforts in thil
regard.
Chapter 395 (Bilingual-Bicultural Education) mandates bilingual:
bicultural programs for publiC school districts meeting specific
requirements. There will be a need for many teachers, counselors,
and other staff for these programs, starting in 1977; and the UW
System should actively support the establishment and/or expansion
of teacher training programs in this area.
Individual campuses (Madison, Milwaukee, Oshkosh, Whitewater, and
Parkside) will be required to commit local resources to the devel-
opment and expansion of these programs. Additional funds sho41ld tie
allocated for bilingual-bicultural teacher training programs, which
have a direct programmatic offering relationship to Hispanic Ethnic
Studies,
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Regarding cultural and academic activities, inter-campus coopera-
tion in sharing af speakers, faculty, rinies to sponsor activities
and coordination of effortS will be required in order to make the
most efficient use of available resources.
A policy statement by the UW Board of Regents relatedito this recom-
mendation will be required, with appropriate allocations to each
campus to carry out this mandate.
e. University of Wisconsin-Extension
(1) The UW-Extension should be directed to prepare and execute a plan of
coordinated efforts (programs, outreach services, research) to serve
the broad range of needs of Wisconsri's Hispanic community.
The Report by UW-Extension Spanish American Programming -- Fiical
Year 74-75 and 75-76 (June 1, 1976), reveals that there have been
many programs by several units in different regions of the state,
with varying degrees of impact on Hispanic persohs/groups. These
. range from educational offerings in the area of physical and mental
health and nutrition, to youth development, small business develop-
ment, tommunity development, and others, with funds coming from a
variety of sources: Title 1 -HEA, Smith-Lever, other state agencies,
and GPR.
There is no evidence of a general plan to coordinate these varied
thrusts by numerous Extension units which appear to work indepen-
dently, often without knowledge of programming by other units which
is also aimed at Hispanr. Both short- and long-term responses are
needed to implement this recommendation.
The UW Board of Regents should direct UW-Extension, with assistance
from central administration, to'develop a comprehensive plan to
coordinate programs, services, outreach activities and research which
relate to Hispanos in Wisconsin. Cooperation with other UW System
units should be built into this plan, and timetables should be
specified for progress reports to be submitted to the Regents.
t-o()
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6. VOCATIONAL,TECHNICAL AND ADULT EDUCATION SYSTEM
Background Information
The Vocational,Technical. and Adult Education System's (VTAE) programs,for
Hispanicpeople, while few, are not funded for de Mght-pareaT(OiltIolng '"'
- ,programs
in the various districts. This does not ensure the continuity that
13 vital if these programs are to have an impact on a population with needs .
as uniqueas those of the Hispanic community. With a budget allocation of -
$107,400,000 plus for the 1973-75 biennium, its money output is far less
than half a million dollars in programs serving the state's Hispanic popu-lation.
Local VTAE districts are responsible for providing services directly orthpugh community Agencies dealing with Hispanos and/or other private or
public organizations. The Board of VTAE has not con onted districts that
have failed to commit monies to be utilized in minorit prog rams, particu-
larlythose addressing Hispanic needs. Local districts have continuously
AvOlded their responsibility by not providing financial matching support
to l°ral ongoing programs. Frequently, projects are forwarded for approval,
to Iho State Roard of VTAE with rio local money commitment from the districts.
That Is. 100 percent federal funding is made a condition by the distridt
hmittinq the proposals. If approved by the State 8oard of VTAE, the project
c4n operate for one year. If VTAE does not approve, there simply is noproject.
In both instances, there is no local commitment to convert the
project into a ongoing program. If the State Board of VTAE does not
aggressivelyencourage local districts to meet their obligations, there is
"0 isurande that programs/projects thus funded will have a continuity beyond
P°"1111Y two years. There cannot be quality services and programming offered
wi" 4nv degree of continuity, as is the case given the present practide.
Conmunilty agencies serving Hispanos must also insist less on outright
Autonomy and shOuldiressure districts to meet local needs. Rather than
continue the funding of scattered, small and short-span projects, the '(:)al
shoul4 he for the districts to absorb those projects as ongoing programs,
since this would asiure continuity and stability. Still, this would 4ve"to
dre hearing in mind the unique program approach that is needed in the
0
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1
case of the culturally/linguistically different Hispanic community. Obvi-
ously, bilingual-bicultural staff will be needed for programs to serve this
population. 1
Out of 99.5 employees at the State BOard of Vocational, Technical and Adult .
'Education, only one (1) is Hispanic. In the four years that the vocational
education consultant who is a Hispano has been employed, VTAE has not felt
the need to hire additional Hispanic personnel. (It should be noted that
this consultant has responsibilities which extend beyond serving Hispanos
and include Native Americans, women, handicapped and the area of corrections.)
The needs of the Hispanic communities throughout Wisconsin require the hiring
of more Hispanic personnel at the state agency level, just as local districts
should be urged to increase their numbers of Hispanic Personnel.
Programs for the Hispanic population funded by local districts are few and
primarily English as a Second Language (ESL) or Adult Basic Skills programs.
With the exception of the Milwaukee progrAdis which serve large concentrations
of Hispanos,.the rest could hardly be called programs. There seems to be no
attempt to concentrate efforts and moniei in areas that would broadly serve
the Hispanic population.
It must also be argued that the needs of the Hispanic community are not
limited to ESL or Adult Basic Skills. There is no evidence of how the VTAE
System plans to involve and serVe Hispanos in more vocational training,
apprenticeship-related programs, or one- or two-year certificate or degree
programs. Nor is there any evidence of VTAE encouraging districts to move
in this direction.
As to the need for informing the public of services available and the func-
tions of VTAE, the latter must depart from "tradition" and initiate public
information measures by itself and in coordination with other agencies and
districts.
rt )
-80-
Recommendati ohs
a. The VTAE System should be directed to employ additional Hispanic personnel
at all levels with special aggressive recruitment and commitment to ,place
Hispanic personnel in decision-flaking positions,
VTAE local districts, particularly those in.areas with significant His-
panic populations, should be urged to increase their numbers of profes-
sional and non-professional staff, and to upgrade and promote Hispanos
who are already working there.
This and the following recommendations require an assessment of present
agency policy as to type of programs,,continuity of these programs,
funding levels, VTAE personnel available to provide technical assistance
to community agencies serving aispanos and local districts. The Depart-
ment of Administration should authorize at least one additional position
for a vocational education consultant with primary responsibility for
programs serving Hispanos.
The response required by this and the following recommendations should
be a combination Of short- and long-term. A copy of the plan of action
with specific steps for implementation and timetables should be made
available to the Governdk
b. The State Board of VTAE, with assistance of the VTAE Directors Associa-
tion and in consultation with the Advisory Council on Vocational
Education, should formulate a plan of action with goals and specific
target dates in establishing continuous_programs for Hisoanos to be
funded as ongoing programs, in cooperation with local districts, in all
program areas in whicn VTAE provides services.
Prerequisites for implementation of this recommendation are:
(1) Analysts of dxisting programs and suggested modifications for
better and increased level of services to Hispanos;
(2) I0entification of alternatives to'safeguard and/or expand existing
or possitkje future relationships between local districts and
agencies serving Hispanic populations; and
(3) Identification of obstacles and recommendations for implementing
alternative solutions, with specific timetableg attached..
c. The State Board of VTAE should set up a Bureau of Bilingual-BiculturalEducation, established with adequate Staffing and resources to meet the
needs for multilingual and multicultural Programming throughout
VIisconsin's VTAE System.
Requests for bilingual-bicultural programming by the VTAE System have_
come from Hispanic commdnities in the state since 1972. VTAE has taken
some limited steps to address these requests, such as the translation
into Spanish of thirty film strips on vocational and technical careers.
There are federal appropriations for bilingual vocational education.
Chapter 395 of Wisconsin Statutes requires bilingual-btcultural programs
(starting in 1977) by Wisconsin public school districts meeting certain
conditions. There appears to be no concerted effort on the part of VTAE
to address a documented growing need and a bureau would provide an
effective vehicle for system-wide implementation acid coordination of
programs in this area.
d. VTAE should be directed to develo and rovide s ecific data that will
n ca e numbers o programs, types o programs, un inq eve s,
continuit aspects of ro rams numbers of'HiTanic ersons enrolled
and ene ng from t ese re e on ra e o ' span c par i
cipants and specific amou s of monies spent in serviceg to Hispanos.
This recommendation requires long- and short-term responses. The intent
in as,king VTAE for data not presently available, is to require the
gathering and publication of data on a regular, ongoing basis, in order
to highlight how Hispanic students are faring in the VTAE System..
This recommendation does not require a'changikin agency policy; it
requires an administrative decision that wilfbe accompanied by proper
'allocation of resources and delegation of duties in securing the requested
datatoth at the staff office level as well as at the district level.
Emphasis should be placed on districts located in areas with significant
concentrations of Hispanos.
9
VTAE should engage In:tOoperative research'ventures, in coordination
with other-state agencies, such as DP% the UW Svttem, HMS, HEAB, and
local districts, aimed at investigating and:accumulating data on the
vocatfonal, technical and adult educational needs of the Hispanic
people of Wisconsin.
This data will assist in cooperative planning by these agenci'as and
1
'VTAE in devisingbetter ways to deliver expanded And improved services
to Hispanos and others throughout Wisconsin.
This recommendation calis for a combination of short- and long-term
implementation. It would'also require the allocation of monies for
this specific tine of research and more initiative on the part of VTAE
to communicate regularly with other agencies in orderlto initiate one
or two such projects before June 1977.
REPORT OF THE EMPLOYMAT: MANPOWER AND AFFIRMATIVEACTION COMMITTEE
1. Department of Administration
2. Department of Agriculture
3. Department of Industry Labor andHuman Relations
4. Department of Regulation andLiCensing
5. State Manpower Council
11, DEPARTMENTOF ADMINISTRATION-:
BackgroUnd Information
The Department of Administration (DOA), under the direction,of the Secretary,
is responsible for carrying out broad statutory authority for the coofdina-
tion and improvement of services provided to state agencies. It provi'des
\management services and assistance to state agencies. It presents clearly
defined alternatives and objectives of state programs ind policies to
facilitate rational decision-neking and planninTby the Governor and the
Legislature. The Department assists state agencies in providing their
services as efficiently and effectively as possible. It assures the Governor
and the Legislature that the services are being provided to the public at the
authorized level. The Department analyzes administrattVe and fiscal problems
faced by the state and recommends solutions.
-The Department is organized into four divisions with ten bureaus and a
-federal-state relations unit:
The Administrative Services Division contains!nost of the internal oper-
ating functions of the Department such as its own budget, accounting,
personnel and payroll functtons and administrative services for attached
boards. A second major function is to develop new management systems
to iMOrove Department operatiCms and to assist the Secretary's office
in major'policies and programs that cut across functlonal divisions.
The Employee Relations Division operates various personnel and employ-
ment services for state agencies: collective bargaining administration,
training, employee classification and compensation, career executive
assessment, civil service exaTinations and staffing, and other employee-
related functions. The division administrates demonsiration projects
employing developmentally disabled persons and former criminal offenders.
The Executive Services Diyision contains(most of the major program and
policy analysis services: comprehensive state p4anning; budget prepara-
tion; management financial, and federal program analysis; program
-85-
evaluation; information serVicesi TiSk management; and other statewide_
management and coordinationfunctions:
The General Services Administration:Division handles mostOf the general
operating serVices provided to state agenciet: state building.program,
facilities planning, real state and appraisals, management of state
office btilldings,,purChasingi, printing, federal surplus property, records
center and microfilm, data processing, auto fleet, protective services
and Other related operations.
In its response to the questionnaire sent by 9e Council, DOA reported as of
April 1976, there were ten (10) Hispanic employees in the agency; five (5)
of whom were listed as "building maintenance helper 2," one (1) was a limited
term employee (LTE-Police Cadet), one (1) a shipping/mailing clerk, one (1)
a technician, and two (2) were professionals. The total number of DOA
employeeswas 934. Detailing its efforts to inform Hispanic citizens of
opportunities for employment in DOA, and other state agencies, the agency
reports hailing prepared Spanish translations 'for job vacancies and other
departmental publications, as well as'job description-summaries (in Spanish)
for inclusion in the'agency's bulletins. DOA furnishes a list of Hispanic
organizations throughout Wisconsin for state agencies to use in sending them
special announcements. The Department also,sends the summarized job descrip-
tions to the Spanish radio and television programs which appear in the 1976
edition.of the "Directory of Agencies and Organizations for Spanish Speaking
in Wisconsin."
poA reports that six (6) Hispanos serve on advisory ,c.cmmdtteeS., commissions,-
or councils attached to the Department for administrative purposes. (The
Governor'S Council f6r SOanish Speaking People is excluded from this tally.)
For the two-year period from january 1, 1974 through DeceMber 341975, DOA
reports that a total of thirty-three (33) Latins served on oral examination
boards for the Bureau of,Personnel.
The Department's Bureau of FaCilities Management (BFM) reports that an
extension to a specific project was awarded to an Hispanic architectural
firm in January 1976, in the amount of $11,532. In addition, BFM indicates
-86-
that it has worked with theobffite ofMinority BusinAt Enterprise (OMBE)
in Orompting:buStness activities with the state by minority contractors.
In this regard, MA has treated:a proposed Administrattve Rule (Adm.. 11.09,
#7) which, if approved, would require affirMative action programs and'
increase equal employment opportunity in construction firms .receiving state
contracts. Finally, DOA4reports that a new position (compliance officer)
has.been added to the AffirMative Action Office to review departMenti on
compliance (or the lack thereof) with Exec No. 9 (Affirmative
Action Program).
In response to a query pertaining to the Bureau of,Personnel's efforts to
recruit Hispanic persons for state aMployment, DOA reports that a record:
of applications for state emOloyment is notmaintained by ethnic background;,
and the Department is thus unable to indicate how many Hispanic applicants
there were since 1974. The saMe applies to the number of Hispanos interviewed.
The Department did report that the number of Hispanic employees (excluding
the UW System) increased-from a total of 518 in 1974 to 556 in December 1975.
These totals make up 0.69 percent and 0:73 percent, respectively, Of the
total state'work force for each year.('
The Department has operated for the past three years a "Minority Summer intern
Program" (MSIP).and Hispanic participation has.beeh as follows: six (6) in
1974, four (4) in 1975, and eight (8) in,1976 -7 out of 60 participants -- or
13,percent. Although.many State agencies take part-in this program, which
gives enrolled persons training in job.related fields and promotes credibility
of these agencies' affirmative action,goalS, DOA reports that some major
departments have not participated (Local Affairs. and Development; Agricul-
ture; Industry, Labor and Human Relations; Natural Resources; and Public
Instruction). Significantly, DOA reports that although the Oshkosh, Platte-
ville, Whitewater, and Madison campuses have participated in the program,
Tthe UW-Milwaukee tampus, which has the largest minority enrollment in the UW,
System, also has not participated.
The Department of Administration reports that two (2) Hispanos have partici-
-pated as tandidates at the ExecutimAssessment Center, but that none of the
examiners have been persons of Hispanic descent. Regarding the training,
0 :I
I I
-87-
Programs in DOA, funded.through theIntergovernmental Personnel Act, these
Were available to Managers anCiUpervisort only. No'-documentatiOn or recordt
exist on Hispanit:participation, but it is probabltSafeto.'attuMe-that there
was little or none, given a target population of management and SUperVisory
personnel. Thwiureau of Human ReSource Services, thrOugh the Federal
'Manpower section, is reported to be 'On the research Stages of a possible
grant applicatidn whfth would, if implemented, target at Spanish-speaking
. individuals whose job aspirattonsinvolved clerical positions."
In the area of affirmative action, the Department reports progress in vari-
o s phases: (1) recruitment, (2) selection, (3) career development, (4)
ev luation methods, and (5) aUdit repoPting. The affirmative action unit
DOA prepared the Affirmative Action Report #4, which was issued in
January 1976. This, ddcument provides the most complete compilation'of
statistics related to affirmative action and includes Equal Employment .
Opportunity (EEO) profiles for state departments, boards, and commissions.
Departments listed as having no Hispanic employees,are:
a. Bankingb. Credit Unions (Office of the Commissioner of)
c. Employment Relations Commissiond. State Historical Societye. Insurance Commissionf. Investment Board
g. Department of Local Affairs and Development
h. Military Affairs1. Regulation and Licensing
j. Savings and Loan (Office of the Commissioner of)
k. Secretary of State
1. Securities Commissionm. State Treasurer
111-88-
The report also provides the following breakdown for state employment of
Hispanic employees from 1972 through 1976:
Hispanic EmpAyees 1/'72 1P73 1/'74 1/'75 1/176:
Permanent ClassifiedSeasonal A
LTEUnclassified
TOTAL
991
50
132
144
1
75
155
181-
1
72
163
417
1'197
3
131
187
2071
129219
282 375 518* 556
The Department of Administration's State Bureau of Personnel issued in
December 1974, an updated version of the Minority Network Referral System,
which is a list of resources which' state personnel managers can use to"
identify minority candidates for available positions.
A more recent effort in the area of affirmative action hasbeen.the estab-
lishment of "CONTACT" (Computerized On-Line Talent Bank of Affirmative
Action Candidates). This project was started as a pilot project to run from
January 1, 1976 through June 30,1976, but has been extended for evaluation
purpoSes: The idea behind it islo matchminority and women Applicants'with
vacancies announced in the Current Opportunities Bulletin (COB) and Wisconsin
Career Candidate Bulletin (WCCB).
Recommendations
The ()garment should intensify- its efforts in-house for affirmative action
comiiTiance so that additional7Hispanic- persons arelRfred. at various-levels
oferiaetIlomenticludfnmatids.uervisorositions.
Employment patterns for Hispanos in DOA seem to be weighted toward the
lower end of the pay scale, and the two Hispanic professionals now in the
agency have been hired very recently. DOA must lead the way for other
*This figure-is higher than the ffgure (511) reported,by the Department ofAdministration in its response to the questionnaire sent by the GoVernor'sCouncil for Spanish Speaking People.
-89-
agencies in making progress In the recruitment, hiring, add promotion of
minority persons and, in this particular case, Hispanic persons. The most
effective way to promote positive change.is by example.
b. The Department shp1ild examine, evaluate and modify affirmative action
practfces and pr cedures by state agencies in order to make them more
effective in recruitment, hiring, and_promoting Hispanic employees at
various levels of responsibility, incTuding managerial and supervisorY
positions.
DOA's efforts in this area will be divided into several categories for
the sake of clarity:
(1) Recruitment
(a) The Department should provide more effective assistance to all
state agencies in the development and implementation of affirma
tive action plans. Beyond this, pm should monitor regularly
how agencies fill newly-approved positions and should provide
them with special aids for recruitment.
(b) The Minority Network Referral System, which is basically a sound
concept, needs to,be updated and re-issued in order to make it a
more effective tool for recruitment. Specifically, rather than.
providing i mechanical listing of individuals who are resource
contacts, the format Should be changed since what is needed is a
carefully researched and perio4cally revised listing of specific
agencies (and Contact peisonS there), together with a brief.
deicription of the types of jobs which each agency can help
recruit for and fill. This document should be distributed to all
state agencies on a regular basis.
(c) DOA should analyze why some state agencies are successful while
others are unsuccessful in recruiting minorities. This analysis,
which should be as specific as possible, should be shared with
the agencies in-question, and with state agencies generally at
workshops on affirmative action, or in the'form of a report. DOA
should not altow agencies to getaway with half-hearted excuses
for their lack of effectiveness and a promise to try again/
62
-90-,
however, agencies will need help ansi specific suggestions in order
to change eXistIng practices.:,
(4) DOA should continue to evaluate carefully potition.descrtptions
so that unnecessary requirements (educational or.otherWise) will
be eliminated or at least significantly reduced. Job qualifiCa-
dons in terms of traintng and experience required shoOd be made
to relate directly to what Any individual has to know in order to 4
carry out his/her assigned duties. Placing undue emphasis on
previous experience in certain type of work is often a means to _
tailor a position for a sp WIC person, generally someone in-
house. Although this is the exception rather than the rule,.
Incidences of this nature would be reduded if.. all position descrip-
tions were carefully evaluated and modified to achieve the goal
discussed above. Job restructuring should also be related to this
task.
(e) Related to the above recommendation, tests should be examined by
DOA to insure that:they measure skills,that are indeed job-rel.ated.
Just as important,"however, these tests should be examined for
built-in biases(cultural,linguistic, etc.) and, whei:ever found,
these should be eliminated. For oral examination'boards, increased
Oartioipation of Hispanic persons as part of the examining group
is essential.
(f) The Bureau of Personnel should be directed to draw up a list of
eligible minority persons and women who are available for a
specific job (with individual test scores and a breakdown by
minority group) and'Orovide it on request to state agendes.
These agencies, in turn, should encourage these persons to apply
for jobs.. It is hoped that this systemwill result in more minor...!
ity applicants being among*the top three candidates and thus, it
will increase the probability of more minority persons (specifi-.
cally Hispanos in this case, but not exclusively) being hired or
promoted.
(g) DOA should continue Project, CONTACT, which should be expanded to
include other non-entry level positions. A systematic recruitment
63
Amp
-91-
effort should be initiated and consistently maintained with the
assistanee of placement offices and special programs in the
universities (public 9nd private), the vocational, technical
districts throughout the state, and business training.and otherk
specialized schools. The cooperation oUJob.Services (DILHR)
as well as organizations serving the Hispanic community in
Wisconsin ,should be sdOght.
(h) The "Minority Summer Intern Program" should be 'continued and
expanded, and Hispanic persons should continue to be recruited
to participate in the program. Campuses of the (1W System with
significant numbers of Hispanic students should be asked to
increase their participation, and special emphasis should be
placed on the UW-Milwaukee campus, which has th4 .1argest number
.of Hispanic students in the vstem.
(i) Peer recruitment is perhaps the most effective recruiting tool and
it should be encouraged and used whenever possible. In the area
of advertising, in addition.to sending-out summaries in Spanish
and job descriptions to Hispanic agenctes and radioand TV pro-
grams in Spanish, person-to-person contact and follow-up will
increase the probability of success. For a more effective utili-
zation of the Hispanic communications media (newspapers, radio,
TV), it may be neceisary to pay to have announcements printed or
aired since these cannot all be expected to be public service
announcements.
(2) Retention
The Department of Administration should keep a record of Hispanic
persons who are recruited and, after a probation period, are retained.
More important, however, is for DOA to record those instances of
persons hired and not retained. ,The reasons for non-retehtion (e.g.,
token hiring, insensitivity of supervisors, inability of the indivi-
dual to perform adequately on the job, other factors involved, etc.)
should be scrutinized and the results of this analysis should be shared
with the agency involved and, as approPriate.to safegtiard the privacy
-92-
of individuals affected, with other state agencies through workshops,
seminars, or in report form. It will be difficult to obtain this
information but, once obtained, it should prove very useful to DOA.
in adopting measures to Amprove affirmative action.
(3) Promotion/Advancement
(a) DOA should encourage agencies to urge minority employees to take
part in management training programs in state government and in
university courses (outside state government). DOA should make
tertain that state agencies facilitate matters for persoris desiring,
to take part in these programs/courses through more flexible
scheduling of working hours, Jo sharing, .
(b) DOe-should establish an inter#agendy re rral n twork for persons
wanting to transfer, bec use there are no àdvanceient possibili-
ties where they work. This would involve lateral transfers as
well as seeking a promotion outside the agency.
(c) DOA should seek funds actl:vely from the Intergovernmental Personnel
Act to,finance programs for staff development and management skills
training for Hispanic employees. Grant applications should be
prepared and submitted to the federal government for programs with
Hispanic persons as the target group, along with other minority
emPloyees. This should be made a priority'by DOA.
In summary, although the Staie of Wisconsin has made significant progress
in affirmative action, it is obvious from the information available on
the subject that much more remains to be accomplished before parity can
be achieved. Response by state agencies is uneven: some achieve their
goals, some surpass "them, some fall short. The reasons why this state of
affairs exists are complex and some have been addressed in the comments
aty4e. What is clear, nevertheless, is that the Department of Administra-
tion should be responsible for not only monitoring affirmative action
efforts, but for developing in a systematic way affirmative action resources
for use by state agencies.
4
--"111/
* -93-
The Department of Administration should continue to promote minority
business_partictpation in statepurchasing and construction contracts by
cooperatfng with the Office of Minority Business Enterprise and the
Governor's Committee on Minority Business.
Since 1975,'there has been cooperation between the Bureau of Facilities
Management and the Bureau of Purchases and Services (DOA) and,OMBE. The
results, understandably modest given the limited time which has transpired,
are'nonetheless encouraging and represent a step in the right diptction.
However, although the initiative and major responsibility for thfs effort
must be placed properly with OMBE, the constant cooperation of DOA is
essential if significant progress is to be made in this vitalarea. For
example, many qualified Hispanic firms fail to submit bids to state pur-
chasing. The reasons may vary, but the complexity of state contract
language and the combination of services within specific contracts often
disfourage Hispanos t4and otner minority businesses) from bidding. -
bined with the usual delays in processing state payments, this would
partly account for the mintmal partiCipaiion to date by minority business,
and particularly Hispanic business, in staie purchasing. There are
probably other areas where DOA can be helpful in bringing about change in
minority businesiyarticipation,-but the attitude of cooperation and
facilitation must be there if the effort, which necessarily will be a
long range project, is to be successful.
The Council also recommends adoption and approval by the Legislature of the
administrative rule which DOA has recently proposed regarding equal oppor-
tunity in construction firms which contract with the state.
d. The Department of Administration should request and finance special tabu-
lations from the 1980 Census for Wisconsin cities, Standard Metropolitan
Statistical Areas (SMSA) and counties with significant concentrations of
Hispanic residents.
In the 1970 Census, Hispanic Americlns were severely undercounted. The
direct impact of this undercount had negative repercussions in the areas
of manpower, education, economic development, health services.and others
(the listis not exhaustive). Recognizing this, the Bureau of Census has
completed a number of estimates which try to give a more accurate count.
-94-
More importantly, however., it has established a national "Census Advisory
Committee On the Spanish Origin Population for the 1980' Census." At a
result of the work of this,coMMittee, Significant changes have been made
in the 1980 census, whIch w91 improve the data collection process and
lessen the probability of An undercount.
Wisconsin's Spanish-speaking population was undercounted.in the 1970"
Census, when 41,500 persons were identified as being of Spanish origin.
Recent estimates (around 63,000 and as high as 71,000) are available,
but there, are no absolutely reliable figures. Agencies serving Hispanos
have been adverSely'affected by this inaccurate data and, therefore, in
the final analysis, Hispanic Americans have not received their fair share
of programs and services.
Congress recogniied the need to gather complete and accurate data on
.Hispanos when it approved H.R. 1753 (Public Law 94-171, 94th Congress),
on December 23, 1975. This legislation allow's states to reqUest specific
tabulations of population;from the Bureau of the Census by submitting a
plan three (3) years prior.to the census date. If approved, data would ,
be made available to that statOone year after the census is conducted.
In addition, a Joint Resolution by Congress (Public Law 94-111; H.J: Res.
92, 94th Congress) was approved on June 16, 1976. Various federal agen-
cies (Oepartments of Labor; Commerce; Agriculture; Health, Education and
Welfare; and the Office of Management and Budget) are directed to
"-develop methods for improving and expanding the collection of data
(unemployment, social, health and economic conditions) relating to
Americans of Spanish origin or descent." Further, the,Department of -
Commerce is ordered to take specific steps to ensure an accurate collec-
tion of data on Spanish origin persons in the 1980 census.
The importance of this recommendation cannot be emphasized enough, and
failure to implement it may well result in another decade of lessened
opportunities for Hispanos, in Wisconsin. DOA.should begin to make plans
immediately in consultation with other agencies which have interest 1nd/or
expertise in the area, such as the Health Statistics Unit (Oivision of
-95-
*
Health, Department of Health and Social Services), the Applied Population
Laboratory (Department of Rural Sociology, UW-Maidson,), the Wisconsin.'
i
Survey Research Laboratory UW-Extension, Madison), and others. Funds,for
this purpose should be allo a ted in the 1979-81 biennial budget, and it
may be necessary toLappropriate a small sum for planning prior to that'
time.
Progress reports on the implementatjon of this recommendation should be
made on a yearly basis (June 30) to the Governor.
Immediate steps should be taken by DOA to ensure that deadlines set by
the Bureau of the Census for submission of requests by states for special
tabulations, be,met.
-96-
2, DEPARTMENT OF AGRICULTURE
Background Information
The primary responsibilities of the gepartment of Agriculture are in 'three ---
major program areas: food and trade regulation, animal disease and plant
pest eradication, and marketing services. The Department is also charged
with regulatory functions that include licensing, inspection, laboratory
analysis and consumer protection. Consumer protection is emphasized in
nearly all.of the Department's programs. 4
The dep4rtmental budget for 1973775 was $20,330,20-. Thereare 781 people
presently employed by the. Department.
Recommendations
a. The Department of Agriculture should initiate an aggressive recruitment
and hiring program aimed at inoeasfhg the number of Hispanic personnel
ill the agency, at various levels of employment.
The Department, according to the information provided to the Governor's
Council for Spanish SpeakingPeople, has 546 permanent employees, 6
seasonal, and 229 limited term employees; making a total of 781 people
employed. Only one (1) of these is an Hispano, employed as a grain
inspector in Superior. The departmental response remarks that all copies
of job annouocements are submitted to the personnel director, who acts
as the minority coordinator, prior to announcement through formal channels.
Also mentionednii the continuing procAs of updating'and validating job
descriptions, but the response notes that this process has not increased
Hispanic hiring by the agency. Greater efforts are obviously needed and
Hispanic organizations outside of Madison should be notified of job
vacancies.
b. The Department should publicize Its consumer protectibn informational
brochures through the Spantsh-speaking media anct organizations :serving,
the Hispanic population. In addition, these brochures should be trans-
lated into Spanish by theDepartment Ain vformati that is easily understood
and accurate. -
69
-97-
"At present, the DepaAment relies on the Milwaukee Concerned Consumer's
League for distribution of consumer trade practice information sent to
them. According to the'departmental response to the Council's quesiion-
naire, the League translates some of this information into Spanish,for
public distribution. The Department should undertake the responsibility
of distribUtion and translation rather than rely on a voluntary organiza-
tion in fulfilling its duty to inform the Hispanlc consumer.
c. The regional Consumer Affairs Office in Milwaukee should hire bilingual
personnel to better serve that part of the Hispanic population who exper-
ience difficulty im understandingEnglish.
/11
At present, there is no one employed in this capacity. Since one of the,
Department's roles i§ consumer protection of the state's population, all
segments of this population should be,equally served.
-98-
3. DEPARTMENT OF INDUSTRY, LABOR AND HUMAN\RELATIONS
Background Information'
Chapter 75, Laws of 1967, renimed the Industrial Commission the Department
'of Industry, Labor and Human Relations (DILHR). the,,Department ishheaded
by a.full-time commi§sion of three members,,who are appointed by the Governor
with the advitesand'consent of the Senate for staggered 6-year terms. The
Governor designates the Chairperson,of the'Department every two years.
.C,
Tile Department has six (6) divisions, whose areas of responsibility are out-
lined below.:
The Administration Division provides supporting.seryices to the Commis-
ion and the divisions in the arlts'of versonnel, data procesing,
financial management,.stenographic services; statistical reporting, and
management plannIng.
The Apprenticeship and Training Division develops and maintains formal
standards for occupational and on-the-job training to assist business
and industry in meeting skilled manpower needs and to improve the employ-
ability of Wisconstn residents. '
The Equal Rights Division idministers the staie's anti-discrimination
laws in emplOment, housing,'public accommodations and state contracts,
and protects workers from inadequate conditions or_standards of employ-
ment through minimum wage, child labor, and tther labor standards regu-
lations.
The Job Service Division provides manpower services to both imployers
and job seekers through placement and counseling programi, and admin-
ister's the state's unemployment conpensation program. Early in 1976,
the Bureau of Migrant and Rur40/Manpower Services was transferred to
Job Service from the Safety and Buildings Division, where it had been
since the 1967 reorganization of DILHR.
71
-99-
TheSafety and Buildings Dtvision protects employees and theipublic from
dangerous'conditions in places qf employment or publie use by.setting
detign, construction and operating standards for these facilities. It
also licenses mobilehome.ManUfacturers and adopts and enforces rules
for the construction of nubile hornet.' A'unit of this division carriet
out the petroleuth inspection fUnction,
The Worker's COmOensation Division insures that benefits are provided
employees or their dependents in the case of work-related injuries,
diseases or deaths.
A nuMber of Councils ate attaChed to DILHR admintstratively,:such as the
Counclon Child Labor, the Equal Rights Council, the Council on Unemployment
Compensation, and others.
The total budget for DILHR in 1973-75 was $73 141,300. Ai of june 1, 1976,
the Department employed"2,593 persons.
Recommendations
§.
a. Administration Division
..(1) The Division should tnitiate an aggressive recruitment and hiringprogram aimed at increating the nuthber of Hispanic personnel atalT levels of employment.
The Division employs a total of 297 people; there are no HispanoS.
Measures should'be taken to correct this situation.
(2) Efforts should be made to promote Hispanic employees within DILHRthrough affirmative action efforts.
It appears that for advertised positions Under the Wisconsin Career
Candidate Program, requirements are sometimes excessive and arbitrary,
and serve to effectively exclude Hispanos from participating in the
process. An alternative to that method would be an approach that
would regularly open up promotions on a competitive basis and allow
interdepartmental promotional transfers.
72
-100-
It appears that a large proportion of the Department's affirmative
action efforts in hiring Hispanos has been in the Migrant Services
Bureau. The figures supplied by the Department indicate that His
panos are adequately represented in the departmental wOrkforce. In
- reality, very few are employed in DIHLR's other divisions and bureaus.
The Administration Divtsicm should coordinate manageMent_traiming
programs among all of DILHR's divisions. Regular programskof this
'nature should assist.Hispanos (and others) in acquiring.and/or
expanding management skills which will in turn make'them more likely
to qualify for promotions.
(3) Hispanos should be appointed to the boards and committees attached
to the Department.
Other than the Migrant Ad Hoc Committee, apparently only one (1)
Hispanic Person is serving on a DILHR advisory committee appointed
by DILHR (Child Labor Advisory Board). While it is recognized that
most of DILHR's advisory committees are composed of those^possessing
technical expertise or representing labor and industry as prescribedA
by statute, special effOrts should be undertaken to appoint Hispanic
persons to committees suCh as the Day tare Facilities Committee, the
recently-established Victims'of Crime Advisory Committee, and to
those appointed by the Governor such ai the Dwelling Code Council and
the Equal Rights Council.
b. Apprenticeship and Training Division
(1) The Division should attempt to recruit and hire Hispanics for job
vacancies at all levels. ,
The Division.has no Hispanic employees. TWo (2) Hispanic people were
employed as ield representatives in Milwaukee, but have recently
left the Division's employment. There are 39 employees within the,
Division currently, with little turnover likely in the near,futore.
HoWever, intensive efforts should be made as vacancies occur to
.tecruit and hire qualified Hispanos. Of particular importance, and
o
-101-
calling for addi al staff, is the employment, of bilingual field
representatives with"speqal emphasis in their job description to
:distribOte apprenticeship information and:to identify and Support
Hispanos who are interested in qualifying for apprenticeships.
(7) The Spanish 'language brochures being prepared by the Division and
aimed at helping Hispanos understand the apprenticeship system should
be well translated in a clear and simple manner. The Division should
unddrtake distribution of the available material througIT 'the media
and organizations serving the Hispanic community.
The Division seems to realize the need to inform Hispanos of the
apprentiteship system since there are few enrolled in the various
programs. Certainly Hispanos are underrepresented in the various
tradeunion apprenticeships in proportion to their numbers. Con-'
sequently, it is important that the Division continue to seek for
effective ways to inform the Hispanic community of the availability
of apprenticeship openings and.the proper procedure in submitting
applicaPoof.
(3) The,Division should encourage the labor and management organizations
that provide i'epreientation to the DivisfOn's committees to suggest
the namesof Hfipanos forappointment to these groups.
The response to the Council's questionnaire states that,it.is dOubt-
ful that the name of any Hitpano has ever been submitted by the labor
Nhd management organizations who have been given the respontibility,,
of nominating members to the Division's committees. It would seem
highly appropriate for the Division's administration to encourage
the appointment of Hispanot, especially as the recommendations and
decisiont made by these committees may affect the representation of
Hispanos in apprenticeship programS.
(4) The Division should cooperate with the Vocational, Tethnical and
Adult Education system in helpingto ensure that more Hispanos'are
enrolled in VTAE district apprenticeship programs.
It is understbod that the Divisioh does not enroll people in the
Various occupational programs; rather, its responsibilities focus
74
-102-
on a0Proving apprenticeship 'indentures.However, the uneven distri=
button andovercOncentrationin some service tradiS deMOnstrate the
need for special efforts to correct this imbalance.
c. Equal Rights Divisioh
(1) The Division shoO4 initiate an aggressive recruitmentond hiring
'program aimed At increasTng the'nu6ber of Hispanic personnel in the
-Division at411-levels.of emOloyment.
In 1975, the agency reported that there were seven (7) Hispanic
employees. In reSponse to the Council's questionnaire,only two
:(2) HiSpanos are ',1itted as presently employed-.
(2) The Division should hire Hispanos as equal rights officers.
Given the large backlog of equal rights cases, additional staff is
needed to expedite their resolution. Care should be exercised so
that Hispanos are included in any new personnel added to the Division.
Perhaps para-professiOnals with the proper training could be utilized
to conduct the necessary,investigations.A number of these para-
professionals should e bilingual Hispanos who would handle cases
involving.PersonS of limited English speaking ability.
(3) The Division's brochures which have been translated into the Spanish
language should be simplified.
Given thR target populatlon the Division is attempting to reach,
these brochures are far too lengthy and complkated. addition
the Division should attempt to achieve.a-wide distribution through
'ike Spanish-speaking media and the Hispanic,organizations serving
their communities.
. Job Service Division
(1) The Division should undertake aggressiveaffirmative action efforts
to recruit dnd employ Hispanos at all levels throughout its vallous
bureaus.
-103-
There are presently no Hispinos emploYed in administratfve positions
with authority to make and implement policy. There are no Hispahos
employed in Unemployment Compensation, ahd Hispanic Job Service
employees are concentrated in local offices, the Migrant and Rural
Services Bureiu and the Employment ServiCe component of Job ServiCe.
Generally speaking, Hispanos in Job-Service are employed at lower
levels and the numbers Of Hispanic Persons receiving higher-than-
median salaries is small.
4.
There are instances of non-Hispanos applying for jobs which require
bilingual abilfty in Spanish and English. When job descriptions
specify the ability tospeak Spanish fluently, care should be exer-
cised that the applicant does indeed possess this ability. This is
particularly important whenknon-Hispanic applicants who claim bilin-
gual skills are interviewed.
(2)*The Divkion should extend its services to the resident/urban non-mfgrantnispanic population..
In the response to the Council's questionnaire, it is stated that
5,797 Spanish-surnamed job applicants are available. Of these, 5,604
are migrants regiitered by Job Service. Lt tppears that a majority
of clients served by the Division are migrant workers, and that the
resident Hispanic population, which constitutes the majority of
Hispanos in Wisconsin, is not being served proportionately. More
outreach activity is needed to address the needs of Hispanic job
,seekers. .Rather than expecting clients to come to Job Service
offices, bilingual/bicultural Job Service employees should be out-
stationed in community-based organizations serving the.Hispanic
population. The Bureau of Migrant and Aural Services is the only
actual Jobiervice outreach effort, and it is designed to serve His-
panos and other workers, in rural areas, thus leaving much of the
Hispanic urban population unserved.
(3) Job Service should subcontract for certification of CETA job seekellowith organizations serving the rural Hispanic population.
-1(14-
TranipOrtation oVer long distances often poses a hardship to poten-
tial CETA clients. In order to_remoxe this barrier, Job Service'
should enter into an agreement with these organizations, subject to
approval by the State Manpower Council; so that CETA.certification
can be provided on location. In the event fhat this alternative does
not prove feasible, Job Service should consider placing outreach
workers in these organizations to perform this function.
(4) The Job Service Division's Spanish language brochures shoUld berevised to correct the numerous transTation errors that exist in
the texts.
Before a translated brochure is approved for printing, efforts should
be made to ensure that the translated material is accurate and
presented,in a clear and easy-to-understand format. In preparing
the information, oare should be taken to write in language appropri-
ate for the identified target population.
e. Safety and Butldings Divison
(1) The Divisipn should initiate an aggressive recruitmentprogram aimedat hiring Hispanic.personnel at alT Tevels'of employment.
The Division currently has approximately 168 employees, none of whom
are Hispanos. With the termination of 63 positions in the Division
and the provision of reinstatement mandated by the union contract
and personnel rules, it seems unlikely that in the near future any'
Hispanos will be given the ooportbnity for employment in the Division.
Therefore, staff budgetary restrictions should be lifted and addi-
tional funding shoulCI be made available through the departmental
budget to hire Division trainees on a permanent basis, with a well-
developed career ladder system.
(2) The Division should search for and appoint Hispanos to their advi-
, tory commitftes.
Many of the Division's advisory committees are technical in nature
and special requi,tements are necessary for administrative appoint-
0100, Qua fied Hispanot should be considered when vacancies occur.
-105-
Hispanos should also be considered for appointment to any of the
Division's broadly based committees which have a number of public
members, such as the Day Care Facilities Committee.
f. Worker's Compensation Division
(1) Hispanic people Should be recruited for job openings as they occur,and employed at all levels within the Division.*
No Hispanic person is presently employed by the Division. The Divi-
sion's Affirmative Action Plan states that the two Wisconsin law
schools are the logical areas of recruitment for the Division's
legal staff. Since the number of minorities graduating from theiUW
and Marquette law schools is small and much in demand, it would
seem that if the DiVision is serious about affirmative action, it
should search for law graduate applicants in areas that are gradu-
ating a sizable number of Hispanos, e.g., southwestern universities,
for recruitment. In addition, Hispanic peowle should be represented
at other levels of employment in the Division.
(2) Bilingual-Hispanic employees should be hired by the Division and madeavailable when needed for translation purposes in the formal hearingswhich_determine,eligibility for worker's compensation.
The Division now depends on volunteer agencies to supply translators
when needed 0 assist Spanish-speaking people. Volunteer transla-
tors are not screened for accuracy and quality of translations before
participating as interpreters in the formal hearings. Their clients
could conceivably be placed at a disadvantage in understanding the
process and ramifications of the questioning by the hearing examiner.
If the Division prefers to continue to rely on the services of His-
panic agency volunteers, some funding from the Division should be
forthcoming for this service. Hispanic residents are entitled to
the same fair and impartial process ai other Wisconsin residents.
(3) The Spanish language posterpublished by the Division explainingtheprocedure for applying for Worker's Compensation should-berevised to incorporate basic instructions for application plus anexplanation of compensation coverage.
-)06-
The poster appears to be too technical. Supplemental information is
needed to explain the coverage and process in applying for compensa-
tion. In addition,.the poster currently in use has been poorly
translated. -An accurate translation should be made in the revision.
) The'DiVisiOn should provide information'to the Hispanic public on
the coverage and required-procedure in applying for worker's com-
pensation.
Informational dissemination is now done by ',the Division only upon
request. The most recent available statistics are for 1973 mten
approximately 50,000 claims were filed; only 60 of these were filed
by Spanish-surnamed people. Additional efforts should be undertaken
by the Division aimed at informing the Hispanic public of the protec7
tion they are entitled to under workers compensation. Job Service
and the Mi4Vant and Rural Services Bureau presently offer this,lnfor-
mation to migrant workers, but no special efforts have been under-
taken for the resident Hispanic population. To fulfill thiS
objectfve, it wtll be necessary to.h,re additional Personnel, as
the seven_currently employed examiner's have 1,600 cases pending to
date and are therefore unable to undertake additional responsi-
bilities.
The Division should establish cooperative relationships with commu-
nity-basedorganizations to provide adequate assistance to Hispanic
workers and their dependents In job-related injuries, diseases and
deaths. The urgent need for this serVice to be provided was empha-
sized repeatedly tothe Council by many persons who stressed that
due:to linguistic and cultural differences Hispanic workers are not
well infdrMe0 of all the benefits they are entitled to receive under. .
the provisions ofworker's compensation. As a result, there have
been several cases of persons who have lost out on possible benefits
for which they are eligible. At the present time, the only organi-
zation in the state wh*thspecializes in this service to Hispanic
workers is Esperanza Unida (Milwaukee), but due to lack of funds it
has been forced to curtail this needed service.
'79
4
-107-
The Council.recommends that these services be funded by DILHR in
cooperation with other units, Sikh AS the DivisiOn of Vocational
Rehabilitati9n (Department of Health and Social Services) and other
state agencies. The Division should also explore the possibility
of obtaining federal,and/or private funding to provide this service
and, once these ,possible-sources have been- identified, proposals to
that effect should be prepared and submitted. bILHR should also
contact the appropriate units of organized labor.to explore the
possibility of obtaining their help,in provi-ding this service to
Hispanic (and other) workers.
-s
a
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DEPARTMENT OF REGULATION AND LICENSING
Background Information '
A number of professional and occupational liqgnsing and regulatory boards
ire provided supportiveadministrative services by the Department of Regu-
lation and Licensing. Each examining board, the Bingo Control Board and
the Division of Nursing, is supervised, with departmental control of the
funds connected with their licensing and'certifying'activiies. In addition,
the Department licenses all charitable organizations in the state. It
processes approximately 110,000 license renewals annually.
The 1973-75 departmental budget is listed in the Wisconsin BlUe Book as
$1,060,000 for general-operational purposes. Each examining board has its
own budget. The departmental work forcellas 91 permanent, fug-time
empjoyees, with approximately 25 LTE's employed seasonallyito process license
renewals.P
'Recommendations
a. Hispanos should be employed by the Department; strong efforts should be
undertaken by the personnel office in recruiting Hispanic candidates,
and.adequate representation should be insured at all levels.
The Department has a work force of 91 permanent, full-time employees.
An additional 25 people are hired as seasonal LTE's to process applica-
tions for license renewal. None of these employees are of Mispanic- _
descent. The personnel office should actively attempt to hire Hispanic
persons by utilizing Innovative methods to attract recruits. Recruitment
-advertisementsshoulctbe placed in the Spanish languve media, and organ-
izations serving the Hispanic comMunities should be notified of aVailable
positions.
b. Hispanic persons should be appointed as professional and public members
of reOlation and licensing boardS.
No Hispanos presently serve on any of these boards. The appointment of
qualified Nispanic members should be undertaken by the Executive Office, )
which has the responsibility for the appointment of members to Most of
the boards attached to the Department.
c. The boards which are responsible for the publication of cOnsumer-orientedbrochures expTainini the liiensing requirements and complaint proceduresof their occupational or professfonal groups should approve translationsof these brochures into the Spanish language.
The Departmentedistributes the brochures throughout Wisconsin to the pro-
fessional offices and places of work licensed by the Department boards
to inform the public of the licensee's obligations and legal bases for
complaint. Well-translated Spanish language brochures should be printed
in a clear and easy-to-understand manner and distributed in areas with a
high concentration bf Hispanic people.
d. The DeOrtment should continue to monitor the process through which appli-cants are licensed to ensure that the written and oral examinations donot discriminate against Spanish-speaking applicants.
AccordinIktO the 11/4 Report, a thorough review was Undertaken by the
Department in 1973 to examiffe any discriminatory bias on the part of the
licensing and regulation boards. That process should continue on a
periodic basis', with emphasis on minorities in general and liispanos01n
particular.
STATE MANPOWER COUNCIL
Background Information
According to the Wisconsin Blue Book, the State Manpower Council (SMC) was
reorganized by the Governor on February 1,1975. It replaced the original
State ManpoWer Council which tad beep created in 1969 and expanded in 1971.
The ,Council is described as "a interagency, intergovernmental advisory body
responsible for developing a sta e mahpower pOlicy and making recoMmenda-
dons for its implementation. Organizationally, SMC has assumed all of the
responsibilities of the State Manpower Services Council under the Comprehen-
sive Employment and Training Act of 1973 (CETA). However, discussions are
presentiy going on between SMC.and the Department of Labor (14.1.)1 Regiom V
Office, on the advisability of creating two separate councils (as per DOL
'Regulations, which call for a State Manpower Council and a State Manpower
Services Council) and a resolution of this issue is expected by January 1977.,
,
% There are at present:hp permanent and15 limited term employees'. in SMC,,With
one (1) permanent, full-time professionals Hispanic.
In response to-the questionnaire, SMC reported:the1011OwinUtformation
about.projects funded through CETA (4 peicent fUnds)l.whichwere aimed at
tfle'Hispanic popOlation:
10ETA, funds are distributed as follows:
(a) Prime sponsors, which are local units of government wgh a population
of 100;000 or more, admjnister funds under Title I°, II and VT of CETA.
(b) Those local goiernmentv not meeting the population criteria-are served
under a balance of state arrangement. In addition, the State Manpower
,Services Council (SMSC) administers 1 pertent, 4 percent, and 5 percent
monies through Title I for purposes of statewide.allocation,
Fiscal Year 1975 Funding LeVeT
$ 31,46010,00012,000.15,100-15,295*8,0004,000
31,04016,7556 350*
$150,000 TOTAL,
Comunidad de Amigos (Belgium)Spanish Center (Milwaukee)La Casa de Esperanza (WaukeshaEsperanza Unida (Milwaukee)La Raza, Inc. (Appleton)La gaza Unida (Jefferson)eentrb Nuestro (Milwaukee)Organizasidn Hispano Americana Madison)
SER (Milwaukee)Rural Manpower (DILHR)
Fiscal Year 1976.
Comunidad de Amigos (Belgium)Spanish Center (Milwaukee)La Casa de Esperanza (Waukesha)Esperanza Unida (Milwaukee)La Raza Unida (Jefferson)Organfzacidn Hispano Americena (Madison)
SER (Milwaukee)
4% MoniesFund.ing Level
$ 41,1284400
5503,722
1806351,3841 613
$145,560 TOTAL
FiscIN Year 1977**
United Migrant Opportunity Services(MilwAukee)
Milwaukee Legal ServicesLa Casa,de Esperanza (Waukesha) and
Waukesha County Technical Inst.
4% MoniesFunding Level
$.75,000
16,337
59 992
$151,329 TOTAL
*Grant was reallocated by the Latin/Migrant Manpower Consortium.
**FY '77 funds Were appropriated and approved at the SMC meeting on
September 1, 1976. '
84' it
For Fiscal Year 1975 and Fiscal Year 1976, a set-aside unt of $150,600. , . ,
per year was allocated by SMC upon the recommendaThrr6f the Latin-Migrant
Manpower COnsortium. This group was established in October 1974 when SMC
proposed the concept, andt was supported by Hispanic agencies-and groups.
This concept also included a set-aside amount of $200,000 for Native Americans.
However, this policy was rescinded at the December 15, 1975, SMC meeting,
following a recommendation,by staff:that the necessit; to provide,Title I\and Title II funding for Native American and Spanish-speaking/migrant pro .
grams should be shared with prime sponsors instead of.relying exclusively
on,4 percent monies for this purpose. For Fiscal Year 1977, 4 percent monies''
were opened up to general competition and a total of $151, 329 Was awarded to
agencies Whose programs are aimed at serving Hjspanos, although, it should be
noted that the United,Migrant Opportunity Services will proyide'technical
assistance and training (TAT) on a statewide.basis to Title III' prime spon-
sors (Latinos and Native Americans) and CETA-funded Hispanic and Migrant
agencies. However; it should be emphasized that the impact on the continua-
tion and quality of services delivered to Hispanos should be assessed. The
changes in programs funded (agencies and amounts involved have fluctuated ,
significantly over the paset three Years) indicate that continuity, of needed
Services may be lacking as well as adequate support and_7mlitment on the
part of the funding agency.
In answer to the query about any special efforts to secure additional funds
to'serve Hispalos, SMC reported that a proposal for funds to provide serv-
ices to persons of limited English-Speaking abilitATitle III, Section 301)
was submitted to the' Department of Labor, Region V Office, in the Spring of
1976, but it was not funded. SMC also requestedand will receive fiinds from
HEW Region V for the development of a High Impact model for migrants and
seasonal workers in Waushara County.
A
Information was' requested by the Governor's Council for Spanish Speaking
People about a number: of,area manpower,planning'boards (AMPB). SMC
requested this information,bbutpthe response at the local level was either
late imcoMingsand very uneVen, or simply did not arrive. Therefore, that..
information is not included in this report.
85
;Ilecently-eOcted:SMC policies±address'the needs of Hispanic persons and
migrants' throughout Wi.sConsin in vocational,:training and other educational
..programs In addition; the gathering of demographic day through turveyt
and related.research to provide a profile of Hispanos and others, has been
made a priority by the SMC.
Recommendationi
.a. The State Manpower Council should undertake more aggressive efforts in, the area of affirmative action and additional Hispanos should be hiredn at various levels of programand administrattve responsibility.
There is only.one.(1) Htspanic professional who is a full-lime eMployee
of SMCialthough Hispanos have been hired in the past as LTV's. SMC is-
now in:the process.of hiring additional personnel And it As advisable
that recruitment of Htspanos,be intensified,-in order to obtain the
desired.goal of more Hispanic employees in SMC. In. addition, SMC should
encourage prtme sponsors and AMPB's to hire Hispanic personnel. at 'various
levels, although it is recognized that compliance by prime sponsors and
AMPB's would be voluntary.
b. The $tate MaqpoWer Council shoUld destgnate Hispanos.as a target groupand:programs thouldbeTsuppOrted-tb address the needs Of this'segment'of the potential CETA clfentele.
ThA Council found it extremely difficult, If not impossible, to ascertain
the.impact which CETA has had or is having on Hispanos in Wisconsin.
There is no available longitudinal research.on Hisparios, and other
minority groups. In order for data. tO be compiled comprehensively and
in 'ailepth, specific 'steps, must.be taken to insure that all necessary
informationls-obtained and made- acCessible upon reqUest by a'research
unit in SMC (or.an outsideagency) with the capacity to analyze this
information and prepare reports on vregular basis. Thft.ihOuld be made
a 'prtority b) the SMC PolicY Committee and funds should be allOcated for
this research effort.
86
C.
-114-
The SMC should allow community agenciet ServinTthe Hispanic communityto certifY clientsfor CETA eligibility.
Through a contract from SMC for this (er-vice, Job Service (DILHR) handles
all certification of clients under CETA in the Balance-of-State. In the
rural areas, many Hispanic persons find it difficult to travel to other
cities to receive this serviCe. As if this were not already a suffi-
cient hardship, those who do manage to find transportation often find
themselves talking to Job Service employees who do nottpeak their
language and are thus unable to serve them:adequately. In order to
alleviate this condition and facilitate the certification-process, commu-
.nity-based agencies and organizations s'hould be allowed to perform and
be reimbursed fot this service. This could be accomplished through a
direct contract with these,agencies or by having Job Service subcontract
with them from the same purpose. -An alternative might also be for Job
Service to outstation bilingual Hispanic employees at these agencies in
order for the service to be provided on location.
The State Manpower Council should give technical assistance on a contin-uing basis to Hispanic agencies, which are providing services under CETA.
,
TeChnical assistance is crucial for agencies tn-func icm on schedul'e-
according:to rules, regulations and contractjeouir4e ents. Many Hispanic
agencies have complained to the Council that ltttle meaningful technical,
assis'tance has been provided,by SMC ln.the past. As a result, some agen-
cies have experienced varyiog deOtes of difficulty in administering
their contracts properly. SMC needs,to assure the'le"adership in '
guaranteefng fhat agencies shall receive teChnical assistance on a
regular, ongoiaa basis. If this service is not available from SMC because4 4
its staff is engiged An other duties, outside assistance should be sought
by SMC, and funds should be allocated for thi pu--nrr.. cr,T chould also.
urge prime-sponsors _to provide similar assistance to M;banic agencies
receiving funds from them. llopfp should also be provided to. those agencies
which plan to submit proposals to prime snonors andior the State Manpower
Council.
-115-.
e. The SMC should increase the number of Hispanic members on,the Councilitself and othec committees.
There are two (2) Htspanos on the State Manpower Council. Others have
served on various ad hoc committees. The need exists to increase,the
number of Hispanic members (as public members or from other categories):
ff a State Manpower Services Council is established,'it is recommended
that several Hispanos be appointed as representatives of the general
public, community-based organizations and from the participant popula-
tion:
The SMCshould urge prime sponsors to'includé'more His/Tic representa-
tion on their respective arealnanpower planning coUncils.
s
-116-
C. REPORT OF THg HEALTH AND socrAL wmcgs:commITTEE
1. Department of Health and Social Services
'DeOartment of Justice
3. Wisconsin Council on Criminal Justice
83
-117-
. .DEPARTMENTOF HEALTWAN0 SOC:IAL SPIVICES
8ackgroUnd Information.
The Department of Health and Social Services has broad responsibilities in
the areas of physical and mental health, services to the aged, corrections,.
public and medical assistance, children's services, and vocational rehabil-
itation. The Department's budget for 1975-77 was $2.1 billion. The total
employee work force as of June 1975 was 9,268. Of these, 44 are Hispanos.,
Late in 1975, Governor Lucey appointed Manuellarballo, an Hispano,
Secretary of the Department.
The divisions in the Department under consideration in this report are
herewith listed with a brief description of each as follows:
The Division on Aging is charged with the responsibility of fostering
the development of comprehensive and coordinated service systems to
serve older persons. In addition, it funds and supervises locally
administered nutrition programs for the elderly.
The Division of Corrections administers programs for the rehabilita-
tionof Suvenile and.adulf offenders. Nine correctional institutlons
are under the jurisdiction of the Divisipno. Division personnel
provide consultation to the courts and law enforcement agencies and
participate in educational programs throughout the state.
The Division of° Family Services is responsible for programs of finan-4
cial, social and rehabilitative services for dependent children and
other socially and economically disadvantaged groups. It suPervises
the counties' administration of stthe and federal public,assistance
fUnds and services to the blind, aged and disabled. It also adminis-
ters a program of medical assistance to those in need of it.001 -
The,Division of Health is responsible for the prevention of disease
and the'enhaneement of the public's physical and mental health. The.
Division provides planning, coordination, and overall supervision for
health services and facilities throughout the state.
u
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,
The*DTvisfon Of:Health Pelicyl.and Planning is responsible for the .admin-
-fstration and suPervisTOn of state health plan development,policy'recom7
Mendations and staff support to th!Health Policy Counci.T. The Division
also administers a federal health Manpower linkage projeci., w ich is :
designed to improve'relationships between planning, resourc,I allocation,
and health manpower functions,in the state.
The Division of Mental Hygiene is responsible for planning and develop-
ment of the statewide mental hygiene program. It administeii the state
menial hialth institutes and facilities for the retarded.
The Division of Vocational Rehabiliiation provides services to help
wicationally handicapped indiiiiduals engage in remunerative occupations.
Its programs attempt to make all vocationally handicapped residents of
the stite emploYable andas economically self-sufficient as possible.
. --The Council', in its research efforts for the final report, considered the
responses to the questionnaire by the Department of Health and Social Serv-% ices and reyiewed the record of testimony given at the five public hearings.
A number of People at each of the hearings voiced their concern for improve-
ment in intake iervices in welfar'e agencies, outreach and community-based
health services, development of a full range of services for elderly
Hispanos and improved a1cohol and drug counseling especially directed at
Hispanic youth.
GeneraT Recommendations to the Department:
In answering the question, "How is your agency or division responding to
the needs of the Spanish-speaking communfty?," a pattern of responses
1characterized the results of the survey and can be summarized by the
following activities:
(1) Providing.written liteVature in Spanish and distributAtit to
local areas for community attest;
(2)' Hiring and stationing in an.agency a.bi..lingual person who can
relate to Hispanic clients;
9
(3) Hiring or,attempting to hire minority persons to fill clerical and
./ secretarial jobs;
(4) Appointment of minority persons to the agency' policy committee
or some other such body;
(5) Using minority staff persons in a public rel,ations capacity to
"trouble shoot" for the.agency in the minority community; and
(6) Using migrant populations and migrant-relevant progiams as evidence
of meeting the needs of the total Hispanic community.
-
The question the Council raises is,."What direct imPact do these kinds of
responses have on the actUal deliverY and/or imprOvement in the delivery
of services to IndiViduals in Hispanic communities?"
The.Council wishes to go on record as not accepting these minimal Iype
actions to minority communities as reasonable indications of agency response.
The Cpuncil recognizes these activities tobe Important services needed by
the Hispanic community. The 'Council also recognizes that these.kinds of
responses alone cannot begin to-meet thelotal needs of.indivi.civals and ...,
families in our community.
The Council recommends that a greater burden be placed upon the agencies
themselves for'designing ways and means of going beyond these minimal kinds
of responses to directly improve the delivery of services to persons in the
community.
Recommendations
a. That a position of ombudsman be created at the Department level or as
a special assistant to the Secretary to deal specifically with Hispanic
persons and their needs. That as pilot prolects, the ombudsman set up
an organization in at least two communities having a significant His-
panic population with the following responsibilities:
(1) To identify on a continual basis individuals and families
in the Hispanic community who are in need of services;
(2) To refer Hispanic and other persons in the community to
appropriate agencies for service delivery; and
(3) To provide follow-up and assistance, including further
referral, until the need for service is met.
As described above, this position is more of an-outreach-referral func-
tion than that qf an ombudsman,'although this urson would also have
input into formulation of poliCy. In addition, this person would iden-
tify services and programs not being provided which should be made
available to Hispanics and see to it_that established policy is indeed
carried out.
b. That the Department should earmark funds available for outreach, intake,and follow-through activities designed specificallylor the eligibleHispanic population as part of the process of negotiating social serv-ice contracts with the counties, and develop programs through purchasedservice;funds to improve services to Hispanos.
c. That the Department, through its Division of Family Services, develop,compilehmd report data -on the number of Hispanic persons in need ofservicei or assistance and, on the basis of findings, correct the lack
. of servIces or improve the delivery system to meet the needs of thoseareas found to be Tacking-.
d. That 'a Concerted effort be made by the Department, through'its Divisionof Family Servfces, to review the activitfes of each of fhe countydepartments of social services or welfare departments in counties havinga concentration of Hispanic residents to assess the adequacy ofservicesprovided and take corrective action where pecessary to ensure thatfamilies and individuals receive proper attention.
e. That the Department review its efforts to comply with Titles VI, VII,and TX of the Civil Rights Act of 1964 regarding non-discrimination inthe delivery of services tb Hispantc persons and others.
Many of the problems identified by tlie Council deal with either the lack
or faulty delivery of services to Hispanic persons. The reasons why
this state of affairs exists are related'Ito what the Council feels is a
lack'of compliance by HMS and its divisions with the 1;idehtified
above. Immediate measures should be taken to correct this situation.
-121-
There is a tendencyamong divisions of,the Department of Health and Social
Services to place the burden of aCtual service delivery on localminority
organizations which are obviously und6r-funded and under-staffed to meet
the demands'that ire placed on them.
The Councilgraises. the following question: "How can the Department of
Health and Social Services reasonably expect these small and Modestly
funded community agencies to carry the burden of providing the direct
delivery of Services to stgnificant portions of the Hispanic community
without having adequate resources made available?"
In response to the question, the Coundi further recommends that,
'a. The divisiona of the Department of,Health and Social Services initiate
a policy of purchasing services from Hispanic community organizations.
b. The divisions be required to provide sufficient technical and staff
support for Hispanic organizations throggh some 4(ind of time-sharing
so fhat Hispanfc organfzations may qualify to_participate in these
- purchasing agreements.
o. Local Aispanic organizations, whiCh provide staff to assist other agen-
cies dealing with clients (as interpreters or in other capacities), be
fuTTy reimbursed by the state.
Recommendations by Division
a. The Division on Aging .,'
The Division on'Aging is charged with the responsibility of fostering
the development of comprehensive and coordinated service systems to
serve older persons.
10heir response,to the Council's inquiry, the Division reported its
intent to advance a $12,000 grant to an HisPanic agency in Milwaukee.
This is recognized as a beginning, but it fails to explain the dearth
of services in other areas. For example, there is evidence that the
north side of Milwaukee has been overlooked by those responsible for
the development of improved services. In our research we could find
no indication that the efforts to develop coordinaled servicef included
9,1
-122-
specific reference, or 'paid partiCularattention,-to Otheroareas Of'
Concentrated:Hispanic p4uiations. Oretumahli, 'County-wW0t statwide
services are available under provisions of the law, but, as a practical
matter, the Hispanic elderly population'has consittently been excluded
because of lack of-bilingual staff, unique cultural and environmental
barriers, and limitations'on funds and resources with which to overcome
these barriers and obstacles.
Therefore, it is recommended that the Division on Aging secure additional
funds and resources for the purpose of fulfilling the following recom-
mendations. If such funds are unavailable, the Division should reassign,
transfer, or reorder 1iir1orities within their present budget to
accommodate the,specific needs of Hispanic elderly in the following
areas:
(1) Development of loCally administered programs designed to impact onHispanics by coordinating, services already available, deveTopingnew services, or enlargfng the range of services offered by other
agencies.
(2) Assume a more aggressive role in the service system by activelyseeking and finding ways to assist agencies and organizations that .
need technical assistance for program development and policy andplanning.assistance, and to support them in thete'efforts,
(3) Ensure that health services to the elderty are readily availablethrough interagency coordination of-these services, fncluding theDivisions of Health Health .Polic and Plannin an Mental
yg ene. at, totsenste I vson ongng_ en er nto
written agreements to Orovide specific services or.to performcertain services in an agreed manner or form. Mese agreementscould serve as a basis for negotiation and evaluation of new andimproved services even though they may not involve monetary consid-erations or resources.
b. The Division of Corrections
The Division of Corrections should direct its outreach efforts toward
the families of the inmates, and to those organizations that work with
those families. We found no evidence of this work in the Hispanic
communities. The Bureau of Probation and Parole uses the Hispanic-
95
oriented agenctes by placing thesresponsibility for the client on the
shoulderi of the community-based 'organization, without any remuneration
for services rendered. The Latino Liaison Program is a step in the
right direction, but we see no evidence of this mudi needed service in
other areas of the state. It is stated that recruitment of minority
workers is done by the Department's central personnel office.- Because
there is not enough.recruitment and hiring of Hispanic personnel, there
* is a tendency to place the burden of actiial service delivery on local
minority organizations which are under-funded andunder-staffed. *These.0.
organizations are expected to serve as translators for both ttie family
of the client as well ai to provide counseling and job placement for
the ex.-offender,
The Council recommends:
(1) That the Division of Corrections design and implement aiplan to
expand and upgrade the services gived-by the Latino liafson Program,
and that similar services be expanded to other Hispanic communfties
in the state.
(2) That any community-based organization giving_staff time for trans-.
lation or jobilacement or other social servfces should be reimbursed
for these, _perhaps under a formal contract for purchase of services
between the Divfsion and other agencies.
(3) The appointfient of at least one Hisli'anic bilingual, bicultural
erson to serve on'advisor committees of-the Division of Correc-
t ohs, a t oug t e ounc recogn zes t at appo ntments y t em-
selves would constitute no_more than a minimal qfort ahd much
More is obviously needed..
(4) Affirmative action efforts tn the Divisioh of Corrections should
ncrease_, an a
at all ievers.
t ona span c personne s ou e re
c. The Division of Family Services
The report of this Division lists numerous seasonal activities and serv-.
ices offered jointly by the Division and other agencies and orgonizations
on behalf of the migrant workers. With the exception of these services,,
the Division coUld not identify services or progra6 specifically aimed.
Of;
-124,
at the Hispanic community. This is.due to the fatt that moSt slervides
are rendered at the county leVel, and are not reported by ethnic group:
Rather, the reporting system is geared to prograrkservices and makes no
distinction between ethnic groups. Some information waWound related
tO race, sex, or age groups and family compositions.4 but there was. little
data related specifically to the Hispanic population. Of major concern
to the participants at the public heirings was.the lack of bilingual
staff at the county level. The local dppartments' lack of1Hispanic
personnel in outreach and intake'functions is considered a serious factor
which contributes to poor service (or lack thereof) to applicants who
speak Spanish.
The Council recommends:
,
(1) That the Division should earmark specific funds available for out-reach4Antake4ncifollow-through-activities for-theeligLibleAtspante-pOpulation as part of the.process of negotiating the toCial serVicecontracts with the countieswith Significant Hispanic populations.
(2) That the Division of Family Services develop prObrams to improvei services to Hisnanos through the purchase of services contracts
with local agencies.
(3) That the Division compile and report data on the number of Hispanicpersons receiving services or assistance from the agency.
(4) That the Division review the activities of each of the county depart-ments of social services and/or welfare departments in areas havinga concentration of Hispanic residentsj assess the adequacy ofservice delivery to the Hispanic Ovulation, and take correctiveaction where_necessary to ensure that individuals and families-receive proper attention.
(5) Adequate training-should be provided.for county.personnel andcommunity-based organizations.in the administration of the Welfare.Program Applidation Form. Training funds from Title XX should beused for this purpose. ,
d. The Division of Health
In every area_where public hearings were held, Hispa ic rsons stated
that there was a lack of adequate health services. The absence of any
97
formal structure to deliver public health services to Wisconsin's citi-r I
zens accounts for the dearth 'of services provided. Hispanic persons,
who-often have trouble getting these services anyhow, are also adversely, .
affected by this state of affairs. If this situation ts to be remedied,
actiqn by the State Legislature in"providing funds to start up programs
will be required.
The Council recommends:
(1) That some of the_pro-grams Ilemented among the migrants such ashealth and dental clinics, ood supplement programs,for women,infants, and 6ildren be available also for the Hispadic residentsof the state.
1
We commend the efforts made by the Division to help the migrants,
but not all Hispanic people are migrants. There is a large resi-,
--dentpopulationthat. needs to beserved as well. Since federal
dollars Wilnot cov'er the cost for these services, state and local
funds will be needed.
(2) That the Division of Health initiate a policy of purchasing servicesfrom Hispanic community organizations to identify health needs andimprove delivery of Eealth services.
(3) That affirmative action efforts be undertaken so that additionalHispanic pertonnel are employed at all levels.
e. The Division of Health Policy and Planning
In order that the Division of Health Policy and Planning can "provide7'
the planning, coordination°, and overall supervision of health services"
to Hisbanos, the Council makes the following recommendations:
LW The Division should recruit and hire Hispanos as part of its affirm-ative action efforts.
There are rib Hispanos on thOivision's staff. A stricter affirma-
tive action effort is needed and should be imptemented.
(2) The Division should strongly urge health institutions to recruit
and hire Hispanic personneT as part of their Wirmative action
plan..
111
I.
The lick of Hispanic personnel
a problem for Spanish-speakin9
services. The Division should
a good faith effort to recruit
ous levels of retponsibility.
in most health institutions creates
clienti/patients who seek health
insist that these institutions make
and hire Hispanic personnel at vari-
.
(3) A Health Maintenance Organization (HMO) should be established in
Milwaukee's near south side to achieve these goes. In other areas
which have a significant concentration of Hispanic population,
similar HMO's should be established.
Maintenance of health and prevention of disease are priorities within
the. Hispanic community.
f. The Division of Mental Hygiene
The Division of Mental Hygiene has made efforts to meet the needs of the
Hispanic population with regard to drug and alcohol programs. However,
there still remains a great need for increased mental hygiene services
to the Hispanic community ln other areas, such as mental health.
The Council-recommends:
(1) That the state increase its involvement in drug and alcoholism pro-
grams for Hispanos in Milwaukee and other areas hy working cooper-
atively with local government (city and county) in expanding
services to reach more Hisdinic youth through the schools and
community organizations.
(2) That there be increased representation by His anic persons on com-
munity boards through which matal hygiene ie vices are provided
at the county level. The Division should act vely encourage coun-
ties with a significant Hispanic population to comply with this
recommendation.
g: The Division of Vocational Rehabilitation
The responsibility of this Division is to provide services which will
render a handicapped person fit to engage in a remUnerative occupation.
99
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As defined in Subsection.3 of the Rehabilitation Law (Wisconsin Statutes
47-40; 1973), a handicapped -person means "any person; who by reason of
a physical.or mental defect or infirmity, whether congenital or acquired
by acciddrit, injury or disease, or any non-disabled person, who by
reason of economic, educationah.experiential, sociocultural or other
-deficiency or-inadequacy, is or may be expected to be totally or
partially incapacitated for reMunerative occupation, or who may reason-
'ably be expected to be fit to engage in a remunerative occupation after
receiving vocational rehabilitation service."
In its response to the questionnaire, the Division of Vocational Rehab-
ilitation (DVR) indicates that some efforts have been made to inform
Hispanic citizens in Wisconsin about the services which it provides
through the publication of a pamphlet: Rehabilitación Vocacional Un
Comienzo Nuevo (1,000 copies). In additibn, DVR reports employing
eight (8) staff who are either bilingual'or bicultural in field offices ,
throughout the state.
'The single major effort to serve a population which is predominantly
Hispanic is the "Comprehensive Vocational Rehabilitation Service
Delivery SY'stem for Disabled Migrant and Agricultural Workers," funded
in Fiscal Year 1976 at a level of $112,832.,
Seven (7) Hispanos serve on advisory committees, commissions or councils
in the Division.
The Division reports having 908 Hispanic'clients on record
in Fiscal Year 1975 but Of 44,263 clients, with the bulk of these
'clients served in Milwaukee (457), Racine (146), Waukesha (96),
Macdison (46), Green Bay (41), Oshkosh (24), Fond du Lac (22), 'and
Shesiaygan (20). The attrition rate, i.e., Hispanic clients closed
before completing the rehabilitation process, totaled 436 during
Fiscal Year 1975 (out of a total of 18,106 similar non-Latin clients).
The Council recommends:
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'(1) The Oivision must.intensify its efforts to recruit and,employ His-panic Personnel 'for staff positions at all levels (administrators,
. professionals, technicians, para-profestionals, office/clerical,and service/maintenance). Agencies with which DVR contracts forpurthase of services should be required to do likewise.
There appear to be enough potential,Clients in areas with signifi-
cant concentrations of,Hispanic population to justify the hiring of
addition'al bilingUal.-bicultural counselors there. Emphasis should
be placed on recruiting bicultural persbnnel, as different from just
'bilingual personnel, given the-importance of person-teLper.-son con-.
tact in the!Work of the counselors.
The Divisionls affirmative action plan speaks,onlyof minorities in
general and no specific mention is made of Hispanos, Indians, or.
Asian Americans; this should be modified in the update& version of 1,,
the plan in 1977.
Purchase of services contracts should contain provisions for the
contracting ageney to hire Hispanic counselors and other staff, in
accordance with DVR policy for affirmative action.
(2) The Division should expand its public information function in orderto reach more Hispanic clients who may be eligible for services.
The publication of a pamphlet is a sound, tntial step, but more
aggressive, out-of-the-ordinary efforts are needed to reach poten-
tial Latin clients. Formal cooperative arrangements with community
agencies serving the Hispanic public, e.g., UMOS, Spanish Center,
DHA, La Casa de Esperanza, etc. (the list-is not intended to be.?
exhaustive), may facilitate this process of referring potential
. clients to DVR.
(3) The Division of Vocational Rehabilitation should make more objec-tive the criteria specified for persons to be eligible to receivevocational rehabilitation services.
The definition of "handicapped personis broad enough to allow an
interpretation Which will allow additional Hispanit clients to-be"
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served', not because of their ethnic background, but'because their
unique economic, educational, experiential, soCtOcultural, or
linguistic background (or a combination thereof) may render some
persons incapable of engaging'in a remunerative occupation prior
to receiving vocational rehabititation services. 'Although' criteria
are presumably racially/ethnically neutral, as interpreted. by DVR,
they are nevertheless subject to personal interpretation iihich often
is highly judgmental in nature. More specificity in operational-
izing the definition of what is a "handicapped person" to include
f'actors such as language, sociocultural background, economic and
educational Oivation is necessary if the Hispanic_ population and
other groups in need of vocational rehabilitation services are to
be served more adequately.
At present, there appear to be no priorities established by the
Division regarding what type(s) of handicapped persons will be
served. Priorities are set indirectly, however, when contracts
are routinely awarded to agencies year after year based on the
volupe of cases. This issue must also be addressed by OVR.
(4) The Division should attempt to reduce the number of Hispanic clients
closed before completing the rehabilitation process.
In their letter of response to the Council's questionnaire, OVR
stated that Hispanic clients were closed in.the same proportion as
clients fin the "other" category. It is small consolation to the
Hispanic community to learn that they are no worse off than others.
More fmportantly, the antwer begs the question of how iffective ire
DVR's services to the Hispanic poriulation and is misleading in
'suggesting that DVR s doing a good job for all. One could just as
e'asily say that DVR\is not doing such a good job for all, and that'
as far as Hispanic clients are concerned, additional bilingual-
bicultural staff in OVR (and agencies serving the Hispanic public)
are needed to improve both the quality and quantity of services.
141
% 102
-130-
Moreover, DVR's answer also suggests that "business-as-usual"
approaches are not likely to succeed with non-traditional, unique
sub-groups, e.g.; Hispanos or Native Americans, so the Division
must go out of its way to undertake out-of-the-ordinary efforts if
it ts to succeed in improving the scope and quality of services to
this neglected segment of the population.
(5) The concept that'the four rehabil4tation facilities in Milwaukee'lointly operate a program on that city's south side to serve anHispanic clientele should be implemented under the initiative andleadership of the Division of.Vocational Rehabilitation.
The Division reports that "this concept has been incorporated into
the goals and objectives of the third year of the Disabled Migrant
Workers Project." While this is'commendable, the concept should be
.actualized into programs/services. More !mportantly, great care
must be exercised not to confuse disabled-migrants with.other
Hispanic persons in.Urban Ireas, who are also in need of services
and constitute the majority of Hispanos in Wisconsin.
(6) The Division should intensify its efforts t gather specific datapertaining to Hispanic clients (and other ethnic/racial minorities)as part of-its regular process of data collection and research.
Information which is available about Hispid persons served by DVR
ts limited, as is longitudinal daia on the effectiveness of voca-
tional rehabilitation counseling with these clients. Additional
xesearch appears to be needed to ascertain why Hispanic client's do
not complete the rehabilitation process and wh,at can be done to
lessen the problem.
4
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Visibility of the Department of Justice in HisOanic communities can be best
characterized as minimal, and there is no evidence that the Department is
attempting to deal with concerns pertaining to the administration of justice
to Hispanic residents and citizens. At the various public hearings held by
the Council, these points were raised as was the fact that Hispanic (and
other minority) communities continue to be over-policed yet remain under-
protected, and many residents fear for their safety, general welfare, and
access to a fair system of justice.
Recommendations
a. The Department of Justice should undertake more aggressive efforts inhiring additional Hispanic staff at all levels.
The Department's Affirmative Action Plan emphasizes the need to hire
Witional "minorities." There is a breakdown in terms of women and the
various minorities, but there appears to be no identifiable effort to
spectfically recruit Hispanos. The'method of recruitment is not speci-
fied, but appears to be standard and has not yielded adequate results
because efforts to recruit minorities must often include a combination
of traditional and non-traditional methods. The affirmative action
report submitted by the Department reiterates that no vacancies.are
anticipated in the near future and therefore no positions will be avail
able to Hispanos and other minorities.
b. The Consumer Information and Protection Program should be expanded toinclude Consumer education outreach activities; additional brochuresand other information should be disseminated to Hispanos throughout
the state.
An effective consumer education outreach program should be initiated by
the Department. Additional brochures of comparable quality should be
developed tocomplement fhe efforts of this consu education program, .
Tand these should be distril5uted with the help of spanic agencies
throughout the state, particularly in those areas aving significant
concentrations of Hispanic population. Other media (radio and TV)
should also be used to convey this message to Hispanos. Non-traditional
104
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and imaginative methods are necessary to reach Hispanic consumers through-
out the state.
c. The Training and Standards Bureau 'should expand its acquisitions of
materials pertaining to Hispanos in a planned, systematic manner. Ade-
quate quantities of high quality materials should be purchased and
their use should be strongly recommended in the Basic Training Curric-
ulum for Recrutt Law Enforcement Officers.
There appears to be a need to be selective about the number and quantity
of materials to be purchased, given limited funds. Rather than purchase
in haphazard fashion, acquisitions should be made on the basis of a plan
which prioritizes areas of concern and has built-in safeguards to insure
that only top rate materials are purchased. Communication with justice
Departments in states with concentrations of Hispanos may be advisable
in securing appropriate information prior to purchase.
The increase in the number of hours devoted to human relations in the
Training Program for Recruit Law Officers is encouraging (8 hours were
required in 1974; 22 hours are:required as of January 1, 1976). Upon
closer examination, the curriculum reveals that four (4) hours are
devoted to human relations and only bdo (2). hours to "racial and
ethnical (tic) differences." Ther apP*s to be aneed to increase
the time devoted to these two areas 4i1 r'earuit training is to encompass
concerns related to minority oopulat ons which law enforcement personnel
serve.
105
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3. WISCONSIN COUNCLL ON CRIMINAL JUSTICE
Background Information
The Wisconsin Council on Criminal Justice (WCCJ), created originally by
executive order in 1969, was transferred from the Department of Justice to
the Executive Office in 1971, again by executive order. The Council serves
as the state planning agency required by the Federal Omnibus Crime Control
Act of 1973 and the Juvenile Justice and Delinquency Prevention Act of
1974. Its goals are generally to provide funding for a coordinated effort
to deal with the problems of crime and improve the criminal justice system
in Wisconsin. A yearly plan is prepared which specifies these goals and
objectives as well as funds earmarked for them. Budget for the agenc.; has
been as follows:
1974 $11,505,0001975 $11,498,0001976 $11,692,000
In its response to the questionnaire submitted by the Governor's Council
for Spanish Speaking People, WCCJ indicated that there was one (1) Hispanic
employee (a Typist II) out of a total work lorce of 57.5 persons.
WCCJ reports that five projects, with budgets totaling approximately $211,504,
have been funded to serve the Hispanic,population:*
(1) Milwaukee Leial Services - Latin Criminal Defense ProjectTotal Budget: $56,628
Awarded: $49,000
(2) Latin Drug Project (Milwaukee)Total Budget: $41,968
Awarded: $ 8,668
(3) Latin Liaison for Ex-Offenders (Milwaukee)Total Budget: $37,762
Awarded: Sl3,384
(4) La Casa de Esperanza - Latin American Publtc Defender
ProqramL(Waukesha)Total Budget: $37,206
Awarded: $ 2,508
o 6
sJ
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(5) 'Spanish American Organization - Public Oefender Program. (Madison)
Total Budget: $37,940Awarded: $ 2,5118
Total monies awarded amount to approximately $76,000. This represents 0.66
percent Of the $11.5 million WCCJ budget n-1975,.
Efforts tO improve services through outreach attempts produebd few results,
according to WCCJ, and have been discontinued. WCCJ claims to have met
with representatives of Hispanic communities to discuss ways in which WCCJ
could be more responsive to their group. However, evidence presented at
public hearings, and other information made available to the Governor's
Council for Spanish Speaking People by Hispanic community organizations
indicate that these efforts were minimal.
WCCJ indicates that there are Hispanos serving on the Council on Criminal
Juctice, on three regional councils (East Central, Southwest, and South
Central), and on one'advisory council,
Finally, WCCJ reports that due to a decrease in funding received from the
Law Enforcement Assistance Administration (LEAA), it has been forced to
adopt a "maintenance of effort" Plan for 1976 and 1977 and that, because
of this, no new'projects aimed at Hispanos will be funded in 1976 or 1977.
Recommendations
a. WCCJ sh,ould undertake an aggressive-affirmative' action effort in recruit--ing and hiringLHispanic employees at various levels.
WCCJ's efforts appear to be quite traditional and the attitude reflected
in their respnse to a question related to this area could be categorized
as complacent. In fairness to the agency, it should be recognized that
since 1974, WCCJ has employed three (3) affirmative action officers and
this turnover in staff may account in part for this ineffectiveness.
Nonetheless, figu'res bear out the fact that, as far as Hispanos are con-
cerned, WCCJ's affirmative action efforts have not been successful and
.9 1 '7
-136-
need to be improved. Their only'Hispanic employee was,hired very recently
by the use of Personnel Rule 27 (Exceptional Employmena. WCCJ should
make this a priority item in its new, revised affirmative action plan.
b. WCCJ should require all agencies receiving LEAA funds to prepare and
comply with an Affirmative Action Plan prior to release of funds.
Hiring goals should include a breakdown among ihe various minority
groups and women.
WCCJ makes hundreds of grants every year to public and private agencies.
All recipients of funds from WCCJ should be required to present an
affirmative action plan with their application for funding. .ProJect
evaluations should include an assessment of how well the agency hes
proceeded toward its proposed hiring goals. Continued funding should be
made contingent on proof that the agency has met tts goals or has V
least made good faith efforts in that diection.
c. WCCJ should be directed to formulate a plan of action and evaluation
which will have an impact on Hispanos and their interaction with
Wisconsin's criminal justice system.
It is difficult to determine what impact the use of WCCJ funds has had.
on Hispanos who come in contact with the criminal Justice system. Projects
are funded according to established guidelines and priorities, but no ft.
substantial assessment appears to have been made, longitudinally or
otherwise, on what the impact of LEAA funds has been on Hispanos. A
coordinated plan ofiaction with accompanying evaluatidn ihould be prepared
to address this need.
WCCJ should provide technical assistance to agencies Aerving HispaAos
tpr_purposes-of program development in areas,related to the criminal
jusllce system.
This type of aaistance would be helpful to Hispanic agencies which
attempt to develop programi to meet identified needs in the-criminal
justice system, whore Hispanos (and other minofiti.es).have not tradi-.
tionally fared well. Agencies and community-based organizations (some
of whom may not be presently receiving funds from WCCJ) should be pro-
vided this assistance by WCCJ staff or through consultant services paid_
for by WCCJ.
1 6
Ii
13-7-
D. REPORT.OF THE HOUSING AND ECONOMIC DEVEOPMENT COMMITTEE
1.
2.
3.
4.
5.
6.
Dep4rtment of
Office of.the
Department of
Departmenjt of
Depirtment of'
Department of
Business peyelopment
COmMissioner Oredit:Uptons
Local Affaii7s:and Development
NaturalResou'rces-
ROVenueli
Ttansportation
2. DEPARTMENT OF JUSTICE
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Background Information
The Dgpartment of Justice, in its present form, was crerated by Chap.ter 75,
Laws of 19,67: It,provides legal and criminal investigation and other law
enforcement services for the state: The DepartMent also establishes stan-
dards of training for police recruits.
In response-to thequestiftaire submitted to them by, the Governor's Council
*for Spanish Speaking People, the Department,of-Justiceindicated that :as of
May 1976 there are two (2) Hispanic female employees in the agerky-out of
total work force of 401 (including LTE's).. One is a Typist III, and the
other is a Consumer Protection Investigator.
Pocopy of the Department's Affirmative Action Plan was submitted also. rn
it, it was noted that.there were 13 minority employees: 10 Blacks, 2 His-,
panic Americans,.and 1 Asian American. These constitute a total of 3.04
perceOlof the Department's Work-force.,The report further states that in
order for'the'Department to reach the present minoritybalance°'for the total
work force of stati agencies, which is 5.14 percent, a total of 21 or 22
minority employees would be,needed(assuming\the number of Department
employees remain constant).
Attached to the Department's response were three brochures in Spanish:
Quién Toca, AsegOresebien...antes de firmar contratos, and Pregunte,
Cuando compre,un autom6vil, published by the Office of Consumer Protection.
Men,tion is made of a film which the Training and Standards Bureau has
recently added td its filM library which emphasizes the need to serve the
panish-speaking. In addition, it is-noted that the number of,hours
required in human relations training hasincreased?rom 8 in 1974 to 22
as of January 1, 1976. The Basic Training Curriculum Manual (a copy of
'whicR was also provided) does nof provide specifics on t'he content of
courses, and it appears that no emphasis is given to Hispanos.
tis
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.DEPARTMENT OF BUSINESS DEVELOPMENT:
Background Information
The Department,of Business Development (DBD) was Created as a separate
department by Chapter 321, Laws Of 1971. Prforxto that title, it had been
the Division of Economic DeveloOmedt'in the Department of Local Affairs
and DeVelopmedt.:- :The Department is.dorged with fostering the growth of
the statt's economy through reiearch, planningand promotion., It.is also
charted, among other things, "with providing Msistance to coMmercial,
industrial and recreattonal developers and to:small:and Minority enter-
'Prises.m
"The Department employs a total of forty-eight (48) persons, of which two
(2) are professionals of Hispanic descent who work in the Office of Minority
Business Enterprise (OMBE); one as a program analyst and the other as the
Latin flield representative.
In its response to the:qUestionnaire, DBD stated that there were two
special publications translated,into. Spanish:. "EL'Small Business AdMfnis-
tratiW Asi.ste 01 EmpreSariOJ_Iispano," and "Gufa Informativa Para Comer-
ciantesH- American InStitqte of CPA's."
Regarding initiatives undertaken to improve the rendering of services to the
Hispanic business community, 080 listed its work with El Centro Credit Union
(help in securing an indenendent charter), the Latin American Chamber of
-Commerce (LAC) (bank feasibility study for the Walker's Point area, in
cooperation with the University of Misconsin-Extension, Center for Urban
Community Development, Milwaukee). Technical assistance was provided to'the
LACC Board of Directors and help was given to an Hispanic architectural firm,
Vega and Espinoza, in securing a contract from the Bureau of Facilities and
Managenient in the Department of Administration.
A copy of the 1976 Directory of Minority Busidesses in Wisconsin, which is
published by the Department of Business Development, was included with the
Department's response to the questionnaire. The Department went on to state
that the Bureau of the Census ,. in a 1972 report, indicated that there were a
llj
,
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tOtal of 252:minority-owned $panish origin butinesses (73-Mexican and 179"other").
In June 1975, a Governor's,Committee on: Minority autiness was formed and its
*membership- includes six persons who7are of Hispanic descent. The thrust ofthis committee is to promote use of minerity,businestes instete pprchasing/
procurement. DBD, through OMBE, hes sponsored a seriet of seminars for
minority businesses throughout the state, but success-, ff judgediv attendencefigures, was limited.
The Department has only one advisory, committee (in addition to.the State
Council for Economic Development, which is 'inactive) -- a 15-person statutory
State Council on Tourism, which includes one minority (Native American)
person.
Recommendations
a. DBD should continue its efforts in the area of affirmative action, withspecial emphasis placed in divisions other than OMBE, where Hispanicpersonnel should be hired at various leveTs of responsibility.=
The Department's efforts 'in hiring Hispanic personnel for OMBE are
commendable and should continue. Siffdlar results should be forthcoming
in other divisions of DBD (Business Development Services and the newly
acquired-- from the Department of Natural Resources --Division of
tourism). Abalanced distribution of Hispanos throughout the entire
DBD work force should be made a priority.
b. The services of the OMBE Field Representative for Latin American Enter-prises should Ibe directed at the Hispanic business community.
Nk.
,Although he was hired in thkFall of 1974 to work clotely with "Letin
American busine'sses,lyurider more,recent directives, the Field:Represen-
tative for Latin AmertcanEnterprises has been reassilned and:since 1975
is de40ting all his tiMe to state purChasing. The result it that contact
With HisOanic businesses hat been severelt.curtailed and the limited,
services provided are due:to efforts.by the field representative which
extend beyond the regular 'duties of his position as presentlyAefined:
112
Many Hispanic businessmen have expressed publicly that they need'assis=
tance from OMRE, but that they are not getting it. It is possible that
a recent federal grant of $172,000 to the Milwaukee Urban League for
the establishment of a Local Business Development Organization (LBDO)
will alleviate this situation in the greater Milwaukee area. Hispanic,
businesses will be served, according to OMBE, since the grant specifies
this, but there is po guarantee that the LBDO will be,able to meet all
the needs of the Hispanic business dommunity. Although the OMBE Regional
oOffice has contracted with W. V. Rouse and C om any (E.Vanston) for tech-
nical assistance for minority businesses in the area of managment
services,' very few Hispanic businesses have received this service. (El
Centro.Credit Union --Milwaukee =- recently received a report on its ,
viability through this arrangement.) It is likely that OMBE's role and
participation will continue to be needed if all Hispanic businesses
throughout Wisconsin are to be adequately served, and DBD should plan
accordingly in restructuring priorities as it looks to the future.
The Department of Business Development Should, through,OMBEJ develo? acomprehensive set of priorities and meaturahle Objectives for the His-panic business community.
The needs Of the Hispanic businesscommunity, which ate different from
the needs of.the Overall community, Must be addressed in a systematic,
coordinated fashion in terms Of long- and short-range goals. To date,
there does pot exist a comprehensive Plan of service delivery by OMBE .
to assist' Hispanic busineSses in the area-of help functions. Specifi-
cally, helpis needed in the area of loan packaging for businesses with',s
sales under $150,000, since the majority of HisOanic businesses, fall
into this category. Indeed, recently established priorities by CMBE
concentrate on state purchaslng and procurement from minority businesset
And should he continued.. HOwever, it is also obvious that while this
is a justifiable 'and worthy goal for minority firms in.general, most
HisOanic :businesses -7 because of their sile and type of business
will not benefit significantly from this effort. Thus, present OMBE
priorities Appear to benefit primarily larger, more established, minority
businesses, among which few are owned or operated by Hispanos':
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The Department (OMBE) should establish an advisory group on business
development for Hispanos, either as part of, but preferably separate .
froM the Governor's Committee on Minority Business, given their different
thrusts.
Finally, the Council feels that theti-aditional methods used by.DBD (OMBE)
in reaChing different giroups has not been particularly effective in,
reaching Hispanic business people. Therefore, the Department should try
out new approaches in the delivery of services to Hispanic businesses,
as determined by the owners and operators,of these enterprises. Specific
referenCe.Should be madd to this point in the Comprehensive plan to be
developed on how DBD (OMBE) can better and more completely serVe the
Hispanic busfness community.
d: OMBE should actively cooperate with the Department of Transportation inseeking out Hispanfc business firms who may qualify to bid for statecontracts in construction and/or maintenance of hfghways, and in repair
and upkeep of the fleet of state vehicles.
The Department of. Transportation has indicated an interest in utilizing.
Hispanic firms for these projects, .which constitute substantial amounts
every year. OMBE must take,the ipitfative and maintain 4 Steady effort
to insure additional involvement of Hispanic'bUsiness firms in state
contracts, especially in this" area.
e. The 1976 Directory of Minority Businesses should be revised to includeall Hispanic-owned and/or operated businesses in Wisconsin. A minority
business newsletter in Spanish and English should be printed and .
distributed by OMBE.
It is clear that the 1976 edition does not contain the 252 Spanish-origin,
minority-owned businesses. It is difficult to ascertain how many are
actually included because there are no cross tabulations or indicatOrs
available for this purpose. Future editions should remedy this situa-
tion, but erhaps an Hispanic Business Directory should be prepared as a
separate document for Wide dissemination. The revised directory listings
(or additional directories).would be used to distribute the newsletter,
which'would appear quarterly or semi-annually with items of interest to
114
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Hispanic businessmen. It would serve to improve the level of communication
with OMBE and should provide a wealth of information on business
developments at the federal, state, and local levels. This newsletter
could also be distributed to newspapers, as well as to radio and tele-,
vision programs which focus on the Hispanic community for their use in
providing information on Hispanos in business. Community-based agencies
and organizations shouldalso receive coptes of the newsletter for
general distribution. An,appropriate.bilingual format to be followed,
might be the Hispanos en Marcha.Newsletter, publiShed monthly by the
Department of Health, Education and Welfare (Region V).
1 1 5
.043-
. OFFICE OF THE COMMISSIONER Or CREDIT UNIONS
Background Information
. 4
The Office of the Commissioner of Credit Unions' budget as listed in the
1973-75 Wisconsin Blue Book is $917,500. Its present staff totals twenty-
four (24), with no Hispanic employees. The Commissioner of Credit Unions
'enforces the laws relating to credit unions, charters new credit unions,
and conducts routine and special examinations Of credit union books-and
records.
It is the respOnsibillty of the Office to cooperate with every group of
people,who may be interested in the formation of a credit union, The Office
is charged to "do 01 things necessary for the discharge of this duty"
(Wisconiin Blue Book).
Since the 1974 PASOS Report, an additional credit union serving the His-
panic populiticm has been chartered,Hispano-Americana Credit Union of
Madison. The onliother credit union now in existence which specifically
serves the needs of the Hispanic community is El Centro Credit Union of
.Milwaukee
Recommendations
a. The Office of the Commissioner of Credit Unions should undertake efforts
to recruit Hispanos as job.vacancies occur. IP
There are no Hispanos in the.Office's work force of 24 persons. As
vacancies arise; strong efforts should be made to recruit qualified
Hispanos, at all levels of responsibility.
b. Bilingual personnel to serve the Hispanic population should be recruited
and hired on a permanent basis.
Emphasis should be placed in the job description on providing the advisory,
informational, and promotional functions to already existing credit unions
serving the Hispanic population and encouraging the formation of addi-
tional credit unions to better serve this population.
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3. DEPARTMENT OF LOCAL AFFAIRS AND DEVELOPMENT
Background Information
The Department of Local Affairs and Development (DLAD) was created by Chaptei-
75 (Laws of 1967), and since 1971 has undergone a variety of changes in its
areas of:responsibility. The Department,iccording to the information pro-
vided to the Governor's Council for Spanish Speaking People, has approxi-
mately 180 employees and no- Hispanos in itsmork force,
DLAD is charged with assisting the Governor "ih coordinating the activities
of all state programs having an impact on Community problems and plans"
(Wisconsin Blue Book). 'Since1971, when the Task Force Report was submitte4,
substantial changes have taken place within the Department. For example,
in 1973 the Human Pesource Fund was'eliminated by the lelislature, which
also restricted applicants for Community Development Funds_to general puitose
local units of governments. Funds'previously used to pay two minority
service coordinators.' were transferred,to DILHR. Finally; the Departmenf
of Housing and Urban Development Title VIII Program, which paid for training
and technical assistance, was eliminated.
Thus, DLAD's capacity to assist individuals and communit nizations has
been reduced, although the Division of Housing and the Office of Economic
Opportunity still retain this capacity and have exercised it.on occasion.
Indeed, DLAD's major area of interaction with agencies serving Hispanos was
housing, where from 1974 through 1976, grants totaling $27,517 were made
to United Migrant Opportunity Services, Organizacion Hispano Americana
(Madison), and Southeastern Wisconsin Housing Corporation (Burlington).
Other organizations which partly served Hispanos were also funded (S71,6P0)
in Milwaukee, Fond du Lac, Racine, and Madison.
Recommendations
a. The,Department of Local Affairs and Development should intensify its
efforts to recruit minorities and should empToy Hispenos at various
-levels of responsibility.
117
There are no Hitpanos in DLAD's work force of 180 persons, and no dis-
cernible effort is evident through which this situation will be changed.
The Department should initiate agglressive efforts to recruit Hispanos,
the effectiveness of which will be measured by the results obtained.
Present methods of advertising available positions appear to be very
-traditional and do not:reveal any effort to employ out-of-ple-ordin4,7
-methods VS eetrUit HitOanict. Such cOmplatenCY in retruitment efforts
is appalling, irFSpite 0f assurances:to the,ccintraey. 7Ihe Status Of
affirmative action in DLAD requires immediate:correctye Measures.
Although the competition for positionsln the Department, is stiff,due
to the numberof high quality applicants, there apOear to be administra-
tive and other obstacles whichadversely affect Hitpanic job.a0Olicants.
For example,.a revised rule protifbits'LTE'sfrOm competing for promo-
tional exams; this eliminates a pool of candidate4, some of whom could
perform at higher levels. Not having HispanoS on'the Department's
peesonnel examining Ooardtjias probably lessened the probabilities of
Hispanic job applicants being hired, and the numbers bear this Out.
In addition, persons chosen-for the Department's management tratmw
program come out of a 40-person clerical pool. Since there.are no
Hispanic workers in DLAD, at _mar level, no Hispano can advance in the
Department's work force.
More emphasis has to be placed on the capability potential of Hispanos
(and other minorities) rather than relyini heavily or exclusively on
academic qualifications: An evaluation of applicants' skills should be
required rather than relying completely on examination of credentials.'
b. The Department should commission a survey of housing needs in rural as
well as urban areas where concentrations of Hispanos reside.
The development of this dotument should be the first step in designing
a coordinated plan of housing development over the. next 5-10 years.
The Housing Division of the Department of Local Affairs and Development
has already made a number of grants to non-profit organizations which
118
,()
build or rehabilitate houting for low income Hispanos and others, such as
Advocap, Inc.; Housing, Inc.; Southeastern Wisconsin Housing Corporation;
and others. These efforts need to be intensified And expanded in.order
to begin to meet presSing housing nee4 of Hispanic residents throughout
the state. DLAD shOuld encourage citsQpd county,governments to use
local and federal funds for housing and housing rehabilitation for low
incOme Hitpanic persons.
An addition-al recoMMendation which it related is for DLAD, alone or in
cocperatinn with city or county departMents of development, HUD-and
other units of government, to commisston-the preporation of "HoMe Repair
Kits" for use by the general public. A pilot project now underway in
the City of Madison, in cooperation with the Madison Public Library, will
prepare such kits, with pertinent ond useful information on how to fix
household plumbing inexpensiveli, make minor carpentry repairs, and
includes other useful tips for the homeowner or renter.
c. The Department should continue to provide technical assistance tO His-
panic non7profit groups in thepreparation of applications for funds
to build or rehabilitate housing for low income Rispanos.
"Technical Ossistan-ce in preOring a proper applIcation andfunds. to hell)
meet application requireMentt are crucial, lf non7profit agencies are to
be successful in securing housing/rehabilltative funds from FHMA, WHFA,
and other institutions. The'Department has provided.this type of help
in the past to Hi,spanic and non-Hispanic grOups who provide some service
to Hispanic low income persons. This assistance not only has to continue,
but should be expanded to technical assistance After funding is secured-
ard projects are underway. Better management techniques, problemcanti-
cipation, and related issues should be included as areas where service
will he provided,
d. The Department should be responsible for coordinating the acquisition of
excess freeway landi,in Milwaukee's near south side,tor conversion into
oark and recreational facilities to serve the Hispanic community and other
area residents.
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Efforts since.1971 to acquire vacant, excess land under tite 1-94 Freewayfor use as park and recreational facilities,have been met with bureau-cratic indifference and red tape, although DLAD, the Department of Trans-portation, the DePartment of Natural Resources, and city and countyofficials agree that it would be a good idea. .The Hispanic communityhas attempted to get the project off the ground, buSliZted resourceshave prevented any real follow-up. The most recent attempt came out ofthe "Inner City Recreation Conference," where the Walker's Point Ad Hoc
.
Recreation Committee recommended that efforts be renewed/again to addressthis community need.
DLAD should be directed to initiate and coordinate efforts, in coopera-tion with DOT, DNR, and other units of government, to see to it ihat theproject is started. This may require preparing and submitting proposalsto HUD, Commerce, DOT, and other federal agenci s since funds may beavailable foi; this purpose. In addition, contat nd follow-up withthe Milwaukee Department of City Development, the Qnity DevelopmentAgency, and other units of government will be required, together withcitizen.involvement in the entire process.
120
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4,DEPARTMENT OF NATURAL RESOURCES
Background Information
The DepartMent,of Natyral Resources (ONR) is responsible for providing an
adequate system for planning and managing the use of the state'-s natural
resources. The Department is responsible for the administration of state
parks and the continuing acquisition of recreational land, with projects
designed to serve the state's urban-population receiving a high priority.
A orcgram for young people, the Youth Conservation Corps, ,Wsponsored by
04R, and departmental funds are used An support of Mil ukee County's Hard
Hat Program.
The 1973-75 departmental budget was 8125,563,300. The 1976 employee total
WAS 2,273, with 1,674 of these full-time, permanent employees.
Recommendations.
a. More Hispanic persons should be employed by ONR'and strong efforts
smould he undertaken by the department's personnel office in recruit-ing Hispanic candidates for positions at all levels of responsibility.
At orsent, there are only three (3) Hispanos employed by the Department /
out of a total work force of 2,273. Of these three, otie (1) is employed
AS an LIE and the other two (2) are emploYed as a techniCian and para-
professional, respectively. The Department should fully iMplement its
Affirmative Action Plan and,changes shduld be made in their recruitment
And hiring procedures since results have been minimal thus far.
b. Seasonal employment by the Departmentshould be broadened to allow
Hispanic applicants eqyal opportunity in seeking LIE jots.
Through the Council's research, it was dilcovered that current LTE
emolovees are hired year after year, thus giving little opoortunity
to uispar.os and others who seek employment with ONP on a seasonal
Jot tasis. The process should be changed to encourage applications
for enDlmvment throuch an open selection policy with no fdvoritism-
onwr fmr prnvicus employment by the Department. Advertisir fordo6
121
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openings should be conducted and emptvaris placed on recruiting Hispanos.
The advertrsements should be translate&and distributed"to the media and
organizations which,serve the Hispanic community. This recommendation
calls for a programmatic change in department policy and some monies to
be allocated for advertising purposes.
o 6
c. Spanish language park signs should be placed in recreational areas serv-fng sizabTe Tlfspanic poptilations.
The beparkment is presently conducting a feasibility study toward the
estaklishment of such signs in the north and south units of Kettle
Moraine Park and in the beach area of Big Foot State Park. These signs
would serve Spanish-speaking people from the Illinois,area, as well as
a sizable nUmber of Hispanic residents. No appropriation from outside
the agency is necessary since DNR manufactures its own signs.
A monitoring approach by the Council seems necessary to ensure.that
there is an adequate number of such signs and that iigns are placed
in high visibility areas.
d. 'The publications describing the facilities of parks that terve a sizableHispanic population should also be printed in Spanish language.versigns.
The possibility ofissuing a Spanish edition of the Big FoOt State Park
newspaper is now being investigated by the,Department. It is essential
that a good translation be made and that the'availability of such a
publication be made known to the Spanish-speaking community by ONR efforts.
Funds for translations should be,available within the Department's
allocated budget, and this should be relatively inexpensive.
e. The Youth Conservation Corps should increase Hispanic participationtbrough intensive recruitment of Spanish-speaking youth.
Since many of the successful applicants receive recommendations through
-their high school counselors, the Department of Public Initruction
should c operate in asking counselors to search for eligible Hispanic
youth ld encourage their participation. In addition, information
122
about the Corps should be made available to Milwaukee Inner City Youth
'Ser ing Agencies (ICYSA)1 in their attempts to reach Hispanos and other
s
minority populations.
A,Additional monies should not be necessary; a change in emphasis is.
The program is popular, with mapy applicants vying*fcir a limited number
of positions. However, special encouragement is necessary for minority
Populations and the Department has an obligation to have all segments
-- of Wisconsin's population fairly represente4 in this program.
f. Since DNR is providing funds ($75,000) toward,the Hard Hat Pro9ram
and furnishes the jobs for youths, they should take an active interest
,jri seeing that Hispanic youth be-adequately represented.
prvl and,Milwaukee,County should Cooperate in: the formulation Ofguide-
lines.that ensure participation ofHispanic youth.. Information should_
be made:available through the media and agencies serving the HiSpanic"
community. No additional funds are-required: DNR needs to lnterjeet
itself into the recruitment process and accent responsibility for the
program in terms of,recruitment.
g: Hispanic people should be represented on-the Department's adVisory
committees.
There are no Hispanos presently serving on any department committees.
Many of the committees are highly technical and those less technical
are made up of representatives of user groups; e:g., snowmobilers and
motorcyclists. Appointment power is about evenly divided,between the
Secretary and tht Governor; the Council recommends that both the
ecretary and the Govehor appoint Hispanic people to committees which
utilize citizen input. This recommendation can be fulfilled by an
administrative commitment to Hispanic representation.
.While the DNR Board is on record with a strong commitment to develops
ing urban parks, the Council urges an emphasis on such action with
full utilization of state and federal funds available for urban park
development.
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,
While. it is realized'th.at land near urban senters Is coStly andHdffficult
to acqUire, circumstances:dictate that .urban recreational areas_are neces-
Sary toT;adequately serve low7ifiCome populations. Manta the state'S
parks.are located far frOM'these urban centers andeonsequently those'
dependent'on maSS transportition are.Iinable,toTUtil e many of the
.exIstingHareas, jf..te legislature should beiirged PjkommitfOil4s: fi:).
'urban parkydevelOpMentand`the Department'S401.07Making boarhoul
:
set kpriority onthe establishment. Of such paricsand:earMark.funds
for mrban park development. illis,,- Of course. is a Tong...term recommen--
dation.
1. ONR should serve as a consultant to other state and local agencies inthe development of Milwaukee County excess freeway land into recrea-
tional areas.
This calls for cooperation with theAepartment of Transportation which
controls the-land, and the Department of Local Affairs and Development
in seeking funds, to develop these areas as urban parks. The Department
should urge the oreation of these recreational areas and actively
assist local groups in making the proposal a reality.fik
124
5. DEPARTMENT OF REVENUE
-152-
Background Information
The Department of Revenue's, Map,- responsibility is to administer the state't
taX laWt. Its functions inaludelCooperation with othet state agencies in
theTtollection Of.Jundsand-assistancetolOcal gOvernmentt in auditing
andfaccOunting servicet u0On request'.
The 1973-75 budget at listed in'the Wisconsin BlUe.BOok is $41,700,000. The
number of employeet-in-May 1976 totaled 1,138.
j 9
Recommendations
The Department of Revenue should initiate an aggressive recruitment anis
hiring program aimed at increasing the number of Hispanic personnel in
the agency,- at all levels of employment.
a
,The Department now employs a total of 1,138 persons; only 10 of these
are Hispanos It seems evident that affirmative action efforts-have
not proved effective to dat.1,. Recruitment of professionarstaff
requiring a college degree should be intensified, with the Department
making special efforts to recruit from in-state as well as at out-of-state
universities graduating a sizable numbest- of Hispanos.
b. Hispanic employees with Spanish language fluency and expertise in
taxation should be hired by the Department-and deployed to assist
Hispanic taxpayers who experience problems in understanding the
English language during the yearl period of tax preparation.
"
The Department's goal of providing ser ce to allofthe ttate's popu-
1,-,atton coUld be better fulsfilled-by stationing'either profestional pr
paraiprofeSsipnal employees 4nPommuni.ty Organi.zattonsserving-:&
Spanish-Speaking clientele. These employees might.bedrawn from the
permanent staff, or provision made in the Department's budget for the
hiring,of limited-term employees during the tak prep ration season.
c. The Department should relay pertinent state tax information to the,
Hispanic population.
kit
This retommendation is closely allied to thepreteding recomMendatton.
For those of the Hispanic community who eXperience difficulty in under-
standing directions and pertinent tax informationin an:English 1.anguage
format, it is important thatthey have attest to the -.sameiformation,
:available.to other state residentS. The DePartMent should undertake
efforts in 4h Ongoing proceSS to inform the HiSpanid Opulation.
, The Department should publish it.s: HoMestead Credttand Individual incOmeTax brochure in a welTtranslated7Spanish language version.
Since the Department is retponsible for disseminating this informatiw
widely to those who may be eligible for,the state program, a Spanish
.language 'version would'assist in reaching that part of the target popu-
lation whicn is likely to experience difficulty with the English
language broChure.
The brochure Should "be Well written in a simple and accurate form. The
Department should astuMe the responsibility for distribution through
the communityorganizations that terVe:the Hjspanic population.' :In:
addition, the eXjstence of the brochure should be 'Well Oublitized in
the Spanish' language media and through agencies serving Hispanic resi-
dents:
e. Qualified Hispanic people should be appointed to the Department'sadvisory councils and committees.
While it is realized the Department has no overall adviiory board'and
that many of.the members of the Department's committees are recommended
by oytside organizations, the Department should encourage Hitpanic
representation. There 4re no Hispanos cUrrently terying on any of the
Departmenes advisory groups.
k
6. DEPARTMENT OF TRANSPORTATION
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Background Information
1.
The Deaprtment of Transportation 1DOT):hasa biennial (1973-75) 6:Udget of
$814,383;200 according to-information available"from the Wisconsin Blue
Book. The DepartMent presently Jlas a total of 4,013 employees; 3,701 of
Which are permanent and full7time. The agency's responsibility encom-
passes the maintenance'of the state highway system, ,the licensing of
vehicles and drivers and all-mode transportation planning as it affects
the state's highways. The,agency cooperates with other state agencies.:
in driver training and education with the Department of Public Instruction;
with the Department of Revenue in the.collection of'highway user fees; a'nd
with the Department of Natural Resources in areas affecting thetravel and
recreational assets of the state. It also shares consideration of reloca-
tion and housing assistance with the Department of Local Affairs and Devel-
opment When highway construct(on displaCespeople.
RecommendatiOns
a. More Hispands should be employed by DOT, and strong efforts should be
undertaken by.theDepartmentus,pertonne1 office in recruiting Hispanic
candidates and ensuring adequaterepresentation in the professional
levels.
The Department has a total work force of 4,013 employees; 3,701 of which
are permanent and full-time. The number of Hispanic employees total 23,
with 14 of these working full-time. The Department's affirmative action
policy needs to be intensively applied. Since the Department has recently
hired 'a full-time affirmative action officer, it is hoped that efforts
will be increased in the hiring of minority members.
b. The Department should actively attempt .to recruit Hispanic applicants
for the State Patrol.
Only a small number of Hispanic people applied for available State Patrol
positions in the last recruiting effort by the Department. Innovative
127
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techniques should be developed by the Department in recruiting practices.
atmed toward attracting qualified Latin appltcants. The State Patrol
has a full7strength work force of 375; only four (4) are:Hispanic
officers. The Department's personnel- office professes Commitment 0
athieving the goal of adequate minority repreventati.on on the State
Patrol tome adOtional funds forrecruitment may well be necessary,
and a strong commitment on the part of ,the personnel office is essen-
tial to carry out this.recommendatioh.
Hispanic people in proportion to the state's Hispaqlx po9ulation shouldbe emplOyed.on construction projects funded by state monies.
The affirmative action compliance guidelines for state construction con-
tracts are identical to those required by thsistederal government for
federal construction projects: Construction comPanies have hired
minorities as E percent of their work force. Hispanic workers, however,
are underrepresented --only 17 were employed according,to figures
furnished by the latest report to DOT. The state should urge that
concentrated effors be undertaken to hire additional Hispanic people
at all levels of nesponsibility.
d. The Department should actively seek out Hispanic businesses for the. awarding of state contracts, hoth in construction and maintenance of
highways, and in repair and upkeep for their fleet'of state vehicles.
A concerted effort is required on the part of the Department to fulfill
this recommendation. Cooperation apparently exists,between the agency
and OMBE; however, the results to date have been minimal. This recom-
mendation also applies to OMBE in fulfilling its responsibilities.
Only one recent contract for body work has been granted to an Hispanic
firm, and an Hispanic engineer is used frequently as a consultant in the
design of highway structure. The Department appears to be making some
effort, but little has been accomplished. Additional funds are not
called for; rather, additioppl commitment is needed. However, this
recommendation falls most heavily 'on OMBE, as the Transportaion Depart-
ment professes a willingness to utilize Hispanic businesses.
128
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The Manual for Motorists should be revised and republished in an easy-
to-understand Spanish language version.
The Spanish translation of the Manual for Morists, published in 1971
(10,000 copies) was somewhat irregular, although it was adequate for use
by Spanish-speaking applicants. A revised tianslation (which should
not be a literal translation) in simple, ordinary language is needed.
Care should be exercised to ensure the quality of any translation aS
well as the thoroughness Of Content, visual information (road signs,
etc.) and other pertinent facts whAch applicants need to know in order
'tdqualify for a WisConsin driver's license.
f. The availability of bilingual road examiners Should be advertised through
the Spanish-speaking media and organizations serving the Hispanic community.
A number of bilingual employees are available to travel to local driver
testi offices upon an applicant's request, and funds have been set
aside n the Department's budget for examiners' travel expenses. The
ser ce has not been fully utilized, and part of the problem appears
0 lie in the advertisement of such,services. The Department has a
responsibility to advertise this service and to disseminate the infor-
mationlitaly through the Spanish-speaking media and organizations
serving the Hispanic community. Only one such effort has been undertaken
in the past by the Department. Innovative and ongoing attempts to
notify the Hispanic residents of this service should be the responsibility
of the Department. In addition, the line staff should be informed of
departmental policy in this regard. Several examples of lack of compli-
ance with.this directive have been reported recently. It is essential
that stiff dealing directly with the Hispanic public should utilize
this service if necessary or requested.
g. The Department should cooperate with DNR and DLAD in acquiring and
developing excess freeway lands In--Milwaukee County for playground
and other recreatIonal uses.
The State Highway Commission has favorably considered and endorsed use
of right-of-way land for conversion into parks for Milwaukee's Hispanic
community and other residents of the near south side. The Department
129
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should be willing to,cooperate with the other tnvolved state departments
and agree to aceept &stronger role, si ce it will take concerted effort
to achieve the goal.
//
h. Hispanic persons should be appointed to serve on the Department's advi-sory committees.
While the representation of Hispanic people appears to be adequate'on
the State Patrol's oral boards, no Hispanos serve on the Department's
advisory committees; some of which are appointedpy the Secretary, and
others by the Governor. Some Hispanic members should be included,.
particularly on the Transportation Advisory Committee, and others which'
advise the Department On policy matters.
130
CONCLUOING REMARKS
4
131-
-159-
A report of this nature can never be considered complete.and will become dated
quickly, given thedynamics.of change in state government. To be sure, there
are areas which could have been included but were not, due to limitations of
time and resources. The mpst glaring omi!tion in this report isin.the area
of migrant labor and related issue!. The problems which migrants and their
famOhies face are well known to Council members, hut Since the Governor's Commit-
tee tn Migratory Labor is already established, the dectsion was made to exclude
migrant affairs from the purview of the GovernOr's Council for SPanish Speaking
People, although some areas (migrant education, migrant cam0 inspection,
manpower/employment services to migmbnts) were indeed touched upon in the survey.
Other problem areas which were not addressed because they fell outside of state
overnment's control are: immigratton nd naturalization policies and procedures;
'7 policq-community relations; lack of compliance with federal law and/or regula-
tions, Such as OSHA (Occupational Safety and Health Act) and the Lau Remedies;
and, others.
In the problem areas which the Council did address, a number of observations
need to be highlighted because they capture elusive yet powerful attitudes, often
grounded on misinformation or lack of information; which permeate agencies'
responses and, unfortunately, are representative of attitudes all too common
in state and federal government, and in the general public as well. These prob-
lem areas can be,described as follows:
1. Hispanos are too often identified with migrant workers. Itis a known
fact that most of Wisconsin's Hispanic residents are not migrants,
although a growing number of,them are indeed former migrants who have
settled in urban or rural areas of the state. It is true that most of
Wisconsin's migrant workers (approximately 94 percent) are of Hispanic
(Mexican or Mexican American)'descent, and this may account for the
misconception. The plight of Hispanic workers in urban areas'is often
not emphasized enough because of the over-identification of Hispano's
with migrants. This is not to be interpreted as a request that programs
and services for migrants and their families be curtailed or channeled
into cities to serve urban Hispanos. Rather, it is simply a caveat not
to make them synonymous, and for resources to be programmed for both
populations.
132
. Hispanos are frequently combined, along with Native Americans, Asian
Americans, and Blacks., under the broader category of "minorities" as
agencies strive to meet affirmative action goals, which include women as
well. One direct result of this decision is that some agencies are able
to satisfy their goals by hiring members of one minority group (usually
Blacks, because they are generally available'in greater numbers) and
devote little or no effort at all to hiring Hispoos, Native Americans,
and, to a lesser extent, Asian Americans (due to their reduced numbers
in this area of the country). The insistence by Hispanos and others
that statistics be broken down for the various minority groups and that
affirmative action encompass the entire minority spectrum,is not a plea
for special consideration, but rather that Hispanos be actively con-
sidered and involved in affirmative action efforts. The most direct
proof of this will be in the number of Hispanos hired by state agencies
in the future as a result of these efforts.
3. It is essential to take note of the many instances where agencies estab-
lish or improve programs for better service delivery to the iiispanic
population, hire one or more Hispanic persons (usually at the-lower end
of the employment scale) or have a pamphlet translated (usually quite
poorly, if one judges by examples made available to the Council) and
consider that their responsibility toward the Hispanic population has
ended. Token efforts often substitute for permanent change within the
agency and, given the nature of bureaucracy, it is not surprising to
see the minimum quickly become the maximum. This situation clearly
cannot be allowed to remain unaltered.
4. The nature of bureaucracy is such that, all too frequently, policy which
set at upper levels of administration (whether it is done hy division
and/or agenCy heads or bY executive'mandate) does not reach down to the
middle or lower levels, where actual implementation of this policy takes
place. It is here that almost on a daily basiS decisions are made which
ultimately mean success or failure of said policy. Unfortunately, there
appears to be little effort after policy is enacted to make certain that
it is followed by all employees, and very often what start out as well
133
Ct.
-161-
thought out plani end up as just another document gathering dust on some-
one's shelf. Affirmative action is perhaps the best exampie of this.
This general comment is applicable not only to Hispanos, but to all
citizens who stand to benefit from such policy.
The fourOroblem areas identified above cannot be undersCored enough because
they lie at the roOt of the-difficulties encountered by Hispanos and others
when dealing withstateiovernment. State Officials, administrators, legisla-
tors, and the public,at-large need to become aware of them before Significant
4
changes can take -place.
\
From what has been stated thus far, it is fairly obvious that in order to imple-
ment many of the recommendations included in this report, a great deal of inter-
agency cooperation will be needed. Improved service delivery and avoidance of
duplication of effort are goals which agency administrators subscribe to
without reservation but, again, this often remains only a good idea because no
single unit (bureau, division or agency) takes responsibility for its implemen-
tation. It is recommended, therefore, that in those instances where more than
one agency (or divisions andburiaus within large agencies) is involved, a partic-
ular unit must be assigned the responsibility of coordinating the effort and be
provided with adequate resources to carry out this task. Failure to do thi§
will surely mean a lack of follow-through and subsequent inaction in this vital
ar a of service and programmatic coordination:
F nally, this report should not be viewed as a hostile document by the agencies
t which the recommendations cOntained herein are aimed. The Council does not
onsider its role to be adversary in nature, although agencies may not like or
agree totaliy with the assessment made of them and the Council's recommenda-
tions for action. The Council has tried very hard to be as objective as
possible.in reviewing all available data and'in formulatin§ What it considers
.
to be reasonable suggestions which, if implemented, would result in improved
programs and delivery of services by state agencies. (Adequate and efficient
service delivery by state agencies is a goal which all pursue. This, after all,
ts,the reason for their exiOente.) It must be emphasized that, although this,
report has focused.on apencies from the perspective of the Hispanic community,
it is nevertheless a camentary on service delivery in geneeal and on how state
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government serves the public-at-large, of which Hispanos constitute a segment
with unique characteristics and needs. The report, then, shOuld not be looked
at exclusively as a document by Hispanos for services to Hispanos (though it is
that, in part), but as a document whose implications extend much more broadly andencompass the total population.
'When the COuncil Was establishedvmemberS were.'informed that many hours of hard,-
tedious-work would be required tocarry out the Governor's mandato' Having
-.completed'its assignment, the Council eXpacts that state government.will seri-
ously and with firmness of purposeundertake. the task of implementing the recOm-mendations made.. .This process will talce time, and seme'recommendations may. not
be actualized due to a'range of limiting factors, perhaps the most important of.which may be budget austerity.. However, many of these recommendations do notcall for additional expenditures. In all cases, concerted action must comeforth so this effort will not end up'assimOt-Tanother attempt which, although
praiseworthy, never accomplished permanent,structural, policy and programmaticchange.
The Council believes it has met the mandate of the Governor. It is,now up tothe Governor, the legislature, and the state agenciet to respond in a positive.,fashion. The Hispanic community will wait'for, and ultimately judge, the
results and accomplishments to come.
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